
REPORT OF 


Investigating Commission 


ON 


HIGHWAY DEPARTMENT 


REPORT OF THE 
BOARD OF CONTROL 

ON 

State Rock-Crushing Plants? 

Working Convicts on State Roads 
and at Crushing Plants 


FINANCIAL STATEMENT OF THE STATE 
ROCK-CRUSHING PLANTS 


E. L. BOAEDMAN, Public Printer, Olympia. 









REPORT OF 


V^UaVu n 

Special Investigating Commission 

ON 

HIGHWAY DEPARTMENT 


REPORT OF THE 

BOARD OF CONTROL 

ON 


State Rock-Crushing Plants; 

Working Convicts on State Roads 
and at Crushing Plants 

FINANCIAL STATEMENT OF THE STATE 
ROCK-CRUSHING PLANTS 


ii- ■jtJoG.t 



a 




















• * 








n. 




























t 




















/ 











( 








X 




* 














I 









11 ;°;J 

■'> r. 

• • £ a? 



















Report of Special Investigating Commission on 
Highway Department. 





Early in October Governor M. E. Hay appointed Messrs. H. 
P. Gillette, J. J. Donovan and E. E. Beard on a commission 
with the request that they investigate the construction and en¬ 
gineering costs of state and state aid roads under the administra¬ 
tions of Highway Commissioners Snow and Bowlby. The gov¬ 
ernor’s purpose in having this investigation made was to ascei*- 
tain what foundation, if any, there was for the widespread 
criticism that was then directed against the management of the 
highway department. 

Desiring that the Good Roads Convention might have the 
findings of the commission for consideration, the governor se¬ 
cured a copy for publication. As explained in the following 
letter of transmittal received from Mr. J. J. Donovan, this 
copy of the report had not been presented to Mr. Gillette, 
chairman of the commission, for his signature: 

1201 Garden St., Bellingham, Wash. 

November 18, 1910. 

Hon. M. E. Hay, Governor of Washington, Olympia, Wash.: 

Sir —Herewith please find the report of the commission appointed 
by you to report on the state highway department signed by Mr. Beard 
and myself. A duplicate signed by Mr. H. P. Gillette, chairman, will 
soon reach you from Chicago. 

This report was written as agreed upon by the commission by Mr. 
Gillette after our meeting in Seattle and forwarded by him to Mr. 
Beard and thence to you. 

There is no difference of opinion among us. I forward to you in¬ 
stead of sending to Chicago for Mr. Gillette’s signature in order that 
you may know our report before the Good Roads Convention, which 
meets at Walla Walla on the 29th. I do not know whether you will 
give report to the press before that convention. If you do, have Mr. 
H. P. Gillette’s name appear as chairman. 

Respectfully yours, 

J. J. Donovan. 


/ 



4 


Hon. M. E. Hay, Governor of Washington, Olympia , Wash.: 

Dear Sir —In .compliance with your letter of October, 1910, asking 
us to act on a board of engineers to examine into the department of 
the state highway commissioner, we submit the following findings of 
fact, together with certain recommendations relative to the manage¬ 
ment of this state department. We also submit some comments on 
possible improvements in the state highway law, which we believe will 
result in the more economic management and construction of state 
and state aid roads. 

Beginning with specific charges made from time 10 time in the 
public press and by word of mouth, we shall consider first the charge 
that the cost of engineering on state and state aid roads has been 
excessive. 

Cost of Engineering: Engineering costs on highway work should 
be divided into two elements: first, the cost of surveys, maps, plans 
and estimates; second, the cost of engineering during actual construc¬ 
tion. Calling the first of these elements the “Cost of Location,” and 
calling the second of these elements the “Cost of Engineering Super¬ 
vision,” it is evident that the best unit in which to express the cost of 
location is the mile of highway located, while the best way to express 
the cost of engineering supervision is as a percentage of the total cost 
of road construction. If, for example, twenty miles of road had been 
located at a cost of engineering amounting to $3,000, and if subse¬ 
quently only three miles of this line have been built at a cost of 
$30,000 for construction, of which $2,100 was engineering supervision, 
we would then express the cost of engineering thus: 


Cost of location. 20 miles at $150.$3,000 

Cost of supervision of three miles. 7 per cent, of $30,000, or. 2,100 


Clearly it would not be rational to add the $2,100 to the $3,000 and 
charge this total of $5,100 to the cost of constructing the three miles, 
when the other eighteen miles are to be built at a later date. What 
we should do is to add a location cost of three miles at $150, or $450, 
to the $2,100, giving us a total of $2,550 for cost of location and super¬ 
vision on the three miles, which is about 8.4 per cent, of the total cost 
of construction and engineering. Were we to charge the entire $5,100 
to three miles, the percentage would be $5,100 divided by $33,000, or 
nearly 16 per cent. This latter method, as we have said, is irrational, 
yet it is the method that has been applied by some critics, particularly 
in the case of State Road No. 14 (Hood’s Canal), where it has been 
said that the engineering has cost 30 per cent. We shall discuss this 
particular road later, but pass now to a statement of our findings as 
to what has been expended by the state highway department from its 
inception up to October 10, 1910. 

During the past fourteen months Mr. H. L. Bowlby has been high¬ 
way commissioner; his predecessor was Mr. J. M. Snow. Statements 
of moneys expended under these two administrations were submitted 
to us, and we have analyzed them as follows: 






5 


EXPENSES UNDER J. M. SNOW’S ADMINISTRATION. 


35.5 miles state aid roads construction.,$165,106 

10.7 miles state roads construction. 60,867 

$225,473 

Engineering supervision, state aid roads. $16,900 

Engineering supervision, state roads. 4,181 

Total construction and supervision.$246,554 

51.6 miles location of state aid roads. $11,119 

132.5 miles location of state roads. 35,546 

_ • 

Total, 184.1 miles location. $46,665 

Camp expenses, state roads.'. $2,736 

Camp expenses, state aid roads. 17 

Miscellaneous expenses, state aid roads.. 3,292 

Miscellaneous expenses, state roads. 609 

Total camp and miscellaneous expenses. $6,654 

Grand total .$299,873 


Since the engineering supervision cost is $21,081, we see that it 
amounted to 8.5 per cent, of the total, $246,554. The 184.1 miles located 
cost $46,665 for location, or $253 per mile. The $6,654 of camp and mis¬ 
cellaneous engineering expense should be distributed between the cost 
of engineering supervision and location. This increases the cost of 
engineering supervision to about 9.3 per cent of the total; and it in¬ 
creases the cost of location to about $280 per mile. 

The average cost of the 46.2 miles of road built was about $5,580 
per mile, including the engineering supervision camp and miscellaneous 
expense, and the $880 location expense. 


EXPENDITURE UNDER H. L. BOWLBY’S ADMINISTRATION. 


55.3 miles of state aid road, construction.$302,523 

80.6 miles of state roads, construction.. .. 286.491 

Total, 135.9 miles, construction.$539,014 

Engineering supervision, state aid roads. $19,736 

Engineering supervision, state roads. 21.141 

Total construction and engineering supervision.$579,891 

206.9 miles location of state aid roads. $22,072 

143.9 miles location of state roads.... . 25,258 

$47,331 


Camp expense, state aid roads. $300 

Camp expense, state roads. 715 

Miscellaneous expense, state aid roads. 4.828 

Miscellaneous expense, state roads. 6,411 


Total camp and miscellaneous expense. $12,254 


Grand total 


$639,476 


The $40,877 spent for engineering supervision is 7 per cent, of the 
total, $579,891. 

The 350.8 miles of location cost $47,331, or $134 per mile located. 

If we distribute the $12,254 of camp and miscellaneous engineering- 
expense between the cost of engineering supervision and location, we 
increase the cost of engineering supervision to about 8.0 of the total, 







































6 


and we increase the cost of location to about $153 a mile, each of which 
is a reasonable expenditure. The average cost of the 135.9 miles of road 
built was about $4,450 per mile, including the engineering supervision, 
camp and miscellaneous expense, and the $153 location expense. 

To the foregoing costs of construction and engineering there should 
be added the cost of administration, which includes the salaries of 
the regular office staff located at Olympia. For this purpose the last 
legislature appropriated $35,000, which is equivalent to $17,500 per 
annum. Since Mr. Bowlby has been in office fourteen months, his pro 
rata would be about $21,000 for administration and office expenses for 
the fourteen months. This should be pro rated to the $88,208 spent for 
location and engineering supervision, and, since those two items are 
about equal in amount, we may say roughly that about $10,000 should 
be charged to the 135.9 miles of road completed. Administration has, 
therefore, cost approximately $75 per mile of completed road. 

We are now provided with sufficient data upon which to base judg¬ 
ment as to the economy with which the engineering has been performed. 

Engineering on railway construction ordinarily ranges from 3 to 8 
per cent, of the total cost, the higher percentage being common on the 
branch lines, and often amounting to more than 8 per cent., depending 
upon the difficulties of construction. 

Engineering (location and supervision) on wagon roads ordinarily 
ranges between 5 and 10 per cent. For many years the engineering on 
Massachusetts state aid roads was 10 per cent. Latterly it has grown 
less, and this reduction is naturally to be expected in any similar case, 
for several reasons. When state aid construction of first-class high¬ 
ways is first begun there are few contractors equipped with adequate 
plants, nor can they be expected to make heavy plant investments until 
they feel sure that the state has committed itself irrevocably to an ex¬ 
tensive plan of road building. Then, too, the first few years usually 
witness a scattering of the road appropriations over many small sections 
of highway construction. It always takes considerable time to assemble 
a plant, gather a gang of men and get the work under way. During this 
time an engineering force must be kept on hand, yet very little actual 
construction is accomplished. 

The history of this early state aid road work in Washington has 
merely repeated the history in other states, and we can already begin 
to see the reduction in the cost of engineering supervision in this state, 
since it was 9.3 per cent, under Mr. Snow, and has been 8.0 per cent, 
under Mr. Bowlby’s fourteen months of administration. That it will 
be further reduced is beyond doubt, but even as it stands there is no 
sound cause for criticism. 

Hood’s Canal Road (No. 14) : This state road has been the subject 
of severe criticism. We find that 22.6 miles were surveyed under Mr. 
Snow at a cost of $5,435, which is about $240 per mile, a not unreason¬ 
able expenditure where careful engineering work is done. However, we 
do not attempt to pass upon the character of the surveying and location, 
for this would require no slight amount of study in the field as well as 




7 


in the office. We find that 3.2 miles have been built at a cost of $17,073 
for construction, plus $1,478 for engineering supervision, and $431 for 
miscellaneous, or a total of $18,978 for construction, engineering super¬ 
vision and miscellaneous expense. The engineering supervision has, 
therefore, cost about 7.7 per cent, of this total. This is clearly a reason¬ 
able expense for engineering supervision. If we add thereto the $240 
per mile for the cost of the surveys made under Mr. Snow, we find that 
the total cost of engineering supervision and location is practically 11 
per cent, of the grand total. Nor is this an unreasonable percentage. It 
will be seen that the critics of this road, having added the $5,435 spent 
in locating the 22.6 miles and the $1,478 spent in engineering super¬ 
vision, and the $450 for miscellaneous expense, making a total of $7,363, 
adding this to the $17,073 spent on construction, they have a grand total 
of $26,436, and then they have said that engineering has cost nearly 30 
per cent, of the grand total. We believe it is unnecessary to point out at 
greater length the fallacy of this sort of reasoning. The 19.4 miles of 
uncompleted but surveyed road should not be charged against the 3.2 

i 

miles of completed road. 

Chuckanut Mountain Road (No. 6) : This state road is to be five 
and one-half miles long, and has been the subject of severe criticism be¬ 
cause less than one mile of it has been completed with the $25,000 appro¬ 
priated for it. The three members of your board of engineers are thor¬ 
oughly familiar with the site of this road and the local conditions, and 
one member of the board has examined the work already done by the 
convicts who have been building it. The Great Northern Railway 
bought from Skagit county part of the right of way on which the orig¬ 
inal road along the west side of Chuckanut mountain was built, leaving 
no good right of way for a road of any character. Indeed, it has been 
testified before the supreme court that it was wholly impracticable to 
build a w r agon road along this mountain at any cost, while other tes¬ 
timony was to the effect that $100,000 to $150,000 would not suffice to 
build the road. However, starting at the worst end of this road, a 
mile has been built at a cost of $25,000, going almost entirely through 
a heavy sidehill cut of solid rock. Heavy masonry retaining walls have 
been built, and the work so far as it has gone is excellent. Up to 
October 8 the following quantities had been moved: 

334 acres heavy clearing. 

6,198 cubic yards solid rock. 

9,853 cubic yards shell rock. 

1,807 cubic yards dry wall masonry. 

If ordinary contract prices are applied to the foregoing quantities, 
and if the reasonable costs of locating the five and one-half miles and 
of engineering supervision are added therto, it will be seen that this 
road work does not show up in an unfavorable light. It is conceded and 
the records show that not as much work was accomplished per convict 
day on this road as on others built elsewhere in the state. Perhaps 
the rugged character of the country makes this road one that is not 
well adapted for building under the convict labor system, due to the 


8 


large number of guards required. In any event, we recommend the 
completion of this road by contract. 

The public criticism of this road strikingly illustrates the necessity 
of either making appropriations for particular state roads only after 
a complete survey and estimate of costs has been made, or of abandon¬ 
ing entirely the previous practice of legislative action in appropriating 
funds for specified state roads. We believe that the latter policy should 
be adopted, and we shall discuss the matter later in this report. 

It is evident that the people who expect to be benefited by this 
Chuckanut road had come to expect a completed five and one-half mile 
road for $25,000 appropriated by the last legislature, when, in fact, no 
engineering estimate of its cost appears to have been made prior to 
the time the $25,000 was appropriated. 

Incidentally, we may add, the ptablic should learn neither to con¬ 
demn any road for its high cost per mile nor to praise any road for its 
low cost per mile, until it has before it the itemized quantities of work 
involved and a full statement of the character of the work done. 

Appropriations for Specified State Roads Should Not Be Made by 
Legislature: In the past it has been the practice of the state legisla¬ 
ture to specify the particular roads that are to be built by the state high¬ 
way commissioner, and specific sums have been appropriated for each 
of these roads. This practice, as we have just seen, has led to trouble. 
Moreover, it has caused much money to be spent on small sections of 
road that begin nowhere and end nowhere—state roads without termini. 
Several roads have been built in the mountains, where neither present 
nor prospective traffic warrants their construction. It seems to us un¬ 
wise to introduce anything that savors in the least of old-fashioned 
“pork barrel” methods in the distribution of highway funds. The suc¬ 
cess of state highway commissions in other states is largely attributable 
to their freedom from legislative restrictions in the matter of decid¬ 
ing where state roads shall be built. 

Moneys Appropriated for State Aid Roads Should Not Revert to 
General Fund: As a corollary of the principle that a state highway 
commission should not be too closely circumscribed as to places where 
funds shall be expended, it follows that the highway commissioner 
should not be required to spend each county’s share of the state aid 
fund during the two-year period under the penalty of causing that part 
of the highway fund to revert to the general fund. Under the present 
law it frequently happens that a county is entitled to so small an 
amount from the state aid appropriation that only a fraction of a mile 
of road can be built. It is clearly not good business to build these very 
small pieces of road, and the law should be so changed that the funds 
to which any county is entitled should become cumulative over a period 
of several years, if need be, until enough is available to justify the 
building of a road of some length. 

It should be remembered that short lengths of road cost more per 
mile than long lengths, not only for engineering, but for construction. 


9 


Separate Appropriation For Administration Not Advisable: At 
the last session of the legislature $35,000 was appropriated for the entire 
office expenses of the highway commissioner’s department. In future 
it would seem better to merge this appropriation with the general ap¬ 
propriations for state and state aid roads. It is almost impossible for 
a legislature to determine in advance exactly how much money will be 
needed properly to run an office of this character. While it may be well 
to specify the maximum salaries that shall be paid to the highway com¬ 
missioner and to certain of his assistants, it does not seem well to limit 
the entire appropriation for office expenses to a predetermined sum. 

Salary of Highway Commissioner Too Low: The salary of the 
highway commissioner is $2,500 a year. This is not a sum commen¬ 
surate with the responsibilities of the position. It is often possible to 
secure a competent engineer having executive capacity without paying 
a larger sum than $2,500 annually for his services, but it usually hap¬ 
pens that such an engineer soon receives more attractive offers, in 
which event it is more a matter of good luck than of good judgment as 
to salaries on the part of his employers if the engineer does not resign. 
It is particularly desirable not to make frequent changes in the staff of 
the state highway department. Otherwise all the experience that has 
been acquired by such a staff is lost to the state. One of the reasons 
why private work is usually better managed than public work is found 
in the fact that better salaries are paid to, or higher profits are made 
by, the men in charge of private work. The magnetic pull of the dollars 
is responsible for the passing of the most competent engineers out of 
public service into private occupations. While exceptions exist every¬ 
where, the general rule is as stated. Hence the wisdom of paying liber¬ 
ally for brains engaged in designing and managing public works. 

The highway commissioner should receive not less than $4,000 a 
year, and this salary should be increased from time to time in future 
years. 

State Crushing Plants: A separate appropriation of $124,000 was 
made by the last legislature for quarries and crushing plants. This 
appropriation has been exhausted, and we are informed by Mr. Bowlby 
that abo'ut $10,000 more is needed to complete the construction of the 
five plants. Here again is an example of the trouble that often arises 
when several separate, special appropriations are made. There is at 
present money available in other funds under the control of the 
highway commissioner, but none of it can be legally used to complete 
these important plants. Had one general highway fund been pro¬ 
vided, every crushing plant could, have been completed. We have not 
attempted to visit these plants, nor have we studied the plans suf¬ 
ficiently closely to determine whether the $124,000 was judiciously 
expended. About $30,000 of the appropriation was spent by the state 
board of control on the plant at Fidelgo Island. Subsequently $42,000 
was spent on the same plant by the highway commissioner and we 
understand that the plant is now in operation, convict labor being 
used to run it. 


10 


We believe that all the state crushing plants should be operated 
by convicts under the direction of the state highway commissioner, 
so that there may be no division of responsibility. It is exceedingly 
important that crushed stone be delivered promptly when and where 
it is required for road work, if the work is to be economically con¬ 
ducted. With the operation of the quarries and crushers in the hands 
of one state department and the building of roads in the hands of an¬ 
other department, each department will be likely to blame the other 
for any high costs that'may occur. The state board of control may 
attribute high costs of crushing to the large amount of time lost by 
the convict forces while waiting for orders from the highway com¬ 
missioner as to the amount of stone required and the points of de¬ 
livery. Delays on the highway work will run up crushing costs. 
Delays on the crushing will run up road costs. Some delays are in¬ 
evitable, but the number is sure to be more where two distinct de¬ 
partments are involved than where entire control is vested in one. 

Economy of Convict Labor: This is an important matter, but 
one that we have not had time to investigate thoroughly. Moreover, 
not enough time has yet elapsed to make it worth while to attempt 
to pass final judgment. 

On the Chuckanut Road (No. 6) it is an open question whether 
convict labor has been as economical as the contract system would 
have been. On the other hand, there are examples of work like that 
on the Lysle road which indicate excellent economic results from the 
use of convict labor. In this connection it is well to note that it has 
cost about $1 per day per convict for all expenses, including transpor¬ 
tation, food, clothes, salaries of guards, etc. We are informed that 
when convicts are kept in prison it costs 37 cents a day per man for 
food, clothes and guarding. The true cost of road work done by con¬ 
victs is therefore not $1 a day, but $1 minus 37 cents, or 63 cents per 
day. Hence all the office records of labor costs of road work done by 
convicts should really be reduced about 37 per cent, to arrive at the 
true costs under this system. In all probability the cost of convict 
labor on the quarry and crushing plants will be not much in excess 
of 50 cents a day per man. 

The convict system can be made far more economic by adopting 
a bonus method of paying the convicts. Thus, in operating a quarry 
it may be found that, without any incentive such as a bonus offers, 
each convict may average daily two cubic yards of solid rock quarried 
and delivered to the crusher. If, then, a bonus of 25 cents per cubic 
yard is offered to the men for each yard in excess of two cubic yards 
per man, the output may increase 50 to 100 per cent., or even more. 
Whether this bonus money is given to the 'family of a convict, or is 
retained for him until the expiration of his sentence, is a detail rela¬ 
tively unimportant. The important thing is to stimulate the ambition 
of the men, and no way compares in the remotest degree with the 
bonus system of payment in attaining such an end. 

Where the conditions are such that the work of individual men or 


11 


of gangs of men cannot be measured up and expressed in standard 
units, then the wage system should be applied to convict labor. A 
wage of, say, 50 cents a day might be decided upon as being sufficient 
to induce the convicts to work with some industry and ambition. But 
wherever the bonus system can be applied we strongly recommend 
its use. 

If the bonus system is used, a careful cost-keeping system must be 
installed on all work done by convicts under the highway commis¬ 
sioner; and, in any event, such a cost-keeping system is essential to 
the most economic conduct of work done by convict labor. 

Monthly Financial Reports: The manager of an industrial cor¬ 
poration is usually required to make at least a monthly financial report 
to the president of the corporation. Such a report, if well devised, 
shows not only itemized operating expenses, but unit costs of various 
classes of product. We believe that the time has come when every 
department of every government should report monthly to the execu¬ 
tive head of the government in a manner entirely analogous to that 
existing in the operation of private corporations. 

Particularly is this desirable in the case of a government depart¬ 
ment whose function is to spend public money for constructing or 
operating public enterprises. Therefore, we recommend that a system 
of monthly financial and progress reports be devised for the use of the 
highway commissioner. This reporting should entail only a slightly 
greater amount of clerical work, and it will automatically insure that 
all records are kept up to date and complete. The highway commis¬ 
sioner is now keeping very full cost records of the work done under 
his direction, but, in the absence of a monthly report to the governor, 
garbled and unfair figures are frequently published by his critics. 
Every public officer who is performing his duty, as we believe the 
present highway commissioner is doing, welcomes the opportunity of 
spreading before the public the record of his achievement. Moreover, 
it is the right of the public to have such a record presented to it; not 
annually, as is the present practice throughout the country, but once 
a month, as is the practice among industrial organizations. Such 
monthly reports need not be printed, but typed copies should be given 
to representatives of the daily press, as well as to the governor of 
the state. 

Among the things that such monthly reports would show would be 
the mileage of roads surveyed and located during the month, and during 
all the months of the current year, and the unit cost of engineering 
per mile. Likewise the mileage of roads constructed, the cost per 
mile, and the cost of engineering expressed as a percentage of the total, 
should be shown. Of course, partly completed roads should be esti¬ 
mated in equivalent completed mileage; thus, four miles 60 per cent, 
finished are equivalent to 2.4 miles completed. Many other facts 
occur to us as essential in such a report, but it is not our province to 
do more than indicate in a general way what is desirable. 

Annual Report by Board of Engineers: It would probably be well 
were it the regular practice for every department of government to 


12 


receive an investigation by a disinterested committee at least once a 
year; not with the view of making destructive criticism, or of gaining 
political capital by exposing minor errors of administration. In pri¬ 
vate life the owner visits his employes frequently, talks over condi¬ 
tions, inquires as to policies and procedure, with a view to increasing 
efficiency by kindly yet keen criticism. In public affairs the owner— 
who is the butcher, the baker, the candlestick maker, and is too 
numerous to make visits to his public service employes if he wished— 
should adopt the policy of hiring men whose special function it is to 
act in the capacity of a private employer. We conceive that special 
commissions or boards should exist for this very purpose. Preferably 
members of such boards should be men drawn entirely outside of the 
realm of politics. They might be selected by the boards of trade of 
cities, by the grange, and by other non-political organizations. In any 
event, they should be chosen without regard to political affiliations, 
and should make it their aim to improve the service rendered by 
public employes. The present method of subjecting an engineering 
department, for example, to public criticism by those who know noth¬ 
ing of engineering, cannot be too strongly condemned. It tends still 
further to drive all but thick-skinned and thick-skulled engineers out 
of public service positions of responsibility. It is particularly desir¬ 
able, therefore, that the department of the state highway commissioner 
be periodically examined by a board of engineers, if only for the pur¬ 
pose of protecting an honest and able incumbent of that office from ill- 
judged or biased criticism. 

As bearing upon this matter, we may cite the fact that we were told 
that many of the engineers employed by the highway commissioners 
were either engineering students or young engineering graduates with¬ 
out adequate experience—“kid engineers.” 

After a careful examination of the surveys, maps, reports, etc., 
made by some of these young engineers, and after a similar examina¬ 
tion of the work done by some of the older men whom they have suc¬ 
ceeded, we cannot agree with those who have criticised this depart¬ 
ment on the score of having employed some young engineers. The fact 
is that young engineers acting under the direction of experienced 
superiors are generally more efficient than men who have grown gray 
without growing competent enough to rise to higher positions. In 
this particular case, also, a corps of men must be trained to do work 
that is comparatively new in this state, namely, the location and build¬ 
ing of modern highways. Since it is not easy to teach an old dog 
new tricks, the part of wisdom is to select young engineers for most 
of the subordinate positions. 

The board of investigating and advising engineers, which we 
recommend, should be asked to pass upon all standard plans and 
specifications for state roads and bridges. That “two heads are better 
than one” is particularly true when it comes to passing upon methods 
of solving engineering problems in design. The experience of no one 
engineer can possibly cover the whole range of desirable experience. 
Hence the almost invariable gain in economic results through the 


13 


conferences of several independent engineers, none of whom is a sub¬ 
ordinate of the other. 

The State Aid Law and Its Merits: We are told that there is 
strong likelihood that an attempt will be made to repeal the present 
state aid road law. Some short-sighted county surveyors who think 
that their field of activity has been limited by the creation of a state 
highway department, some farmers who dread increased taxes, and 
others are named as enemies of the present law. Perhaps it is well 
for us to recite the fact that this same sort of opposition has risen 
in other states that have adopted state aid road laws, but it is note¬ 
worthy that not a single state has yet taken a step backward by re¬ 
pealing the law establishing a state highway department. In New 
York state, twelve years ago, a state aid law similar to that in this 
state was adopted, and, after much opposition, $50,000 was appro¬ 
priated for the first year’s work. The opposition to further appropria¬ 
tion became even more violent the following year when it was learned 
that the modern hard roads were costing $10,000 a mile. Fortunately, 
however, the state aid work was allowed to go on. As a result, the 
demand for larger appropriations began to grow, until a few years 
ago the citizens of New York voted a bond issue of $50,000,000 for the 
state’s share of the cost of state aid roads. This money is to be ex¬ 
pended during a period of ten years. 

Similarly, the grange in New Jersey fought the proposed state aid 
law, fearing increased taxes. A few years after the law had been in 
operation the farmers were found fighting for increased road appro¬ 
priations. 

It is a noteworthy fact that only those states that have adopted 
state aid laws have secured any considerable mileage of good roads, 
and it is noteworthy, also, that the road tax which the farmers have 
dreaded has proved to be a lamb in wolf’s clothing. 

Cost of Roads: We have been unable to study the costs of road 
construction done under Mr. Bowlby. Eastern states are spending 
$6,000 to $10,000 a mile for macadam roads. Perhaps $8,000 is a 
general average in the east. Average costs of construction are higher 
in Washington, due to higher rates of wages. It is idle to talk of secur¬ 
ing first-class highways, paved sixteen feet wide, for less than about 
$8,000 a mile. On the other hand, it is not always necessary to make 
the paved portion more than eight feet wide, if turnouts are provided 
at short intervals where two loaded wagons can pass. Thus can good 
single track roads be secured at reasonable cost—roads that will be 
serviceable in all sorts of weather. 

We believe that many of the cheaper forms of gravel roads, and 
of tamped earth roads, etc., will more economically serve certain 
communities than will the expensive types of macadam. Each case 
is an economic problem in itself, the solution of which depends mainly 
upon the amount of traffic naturally tributary to the road in question. 

AVe are informed by Mr. Bowlby that California asphaltic oil has 
been costing about 6 cents per gallon delivered in tank cars, but that 


14 


the same oil delivered in a tank steamer can be secured for 3 cents 
per gallon. In view of the remarkably cheap and excellent roads 
that have been built in California with the use of asphaltic oil, it is 
practically certain that the ability to secure such oil at 3 cents a 
gallon at Puget Sound ports will effect a great reduction in the cost 
of good roads. Gravel, and even ordinary earth, can be “bound” or 
cemented together with the California asphaltic oil, yielding a hard, 
waterproof surface. Members of this board have seen many excellent 
roads of this character in California, and in the state of Washington 
there are several sample roads that conclusively prove the adaptability 
of the California asphaltic oil to this climate. 

Conclusion: While we have not attempted to visit the various 
roads built under Mr. Bowlby, we have examined plans, specifications, 
etc., and have, as above outlined, analyzed the costs in a general way. 
As a result of this study we are of the opinion that Mr. Bowlby has 
managed his department with efficiency, and that he has organized a 
competent corps of engineering assistants. 

We believe that the state would make a serious mistake were it 
to abandon its policy of building state aid highways under the direc¬ 
tion of a state highway commissioner. 

J. J. Donovan. 

E. E. Beard. 


15 


THE STATE QUARRIES. 

(Report of the Board of Control.) 


In addition to the ever-increasing and multifarious duties 
incident to the management of the state charitable, penal and 
reformatory institutions, the last legislature imposed upon the 
Board of Control the task of establishing and operating with 
convict labor four or more state quarries, upon sites to be 
selected by the highway commissioner in accordance with the 
recommendations of a board of geological survey. For the 
purpose of acquiring sites and installing plants $100,000 was 
appropriated from the highway fund, and to provide stockade 
and buildings for the convicts $24,000 was appropriated from 
the general fund. 

When the crusher plans had been adopted by the highway 
commissioner the primary intention of the Board was to pur¬ 
chase and successfully place in operation, first the Fidalgo 
plant, and then a second one near North Yakima. Under the 
specifications, two No. 6 Austin crushers of a maximum capac¬ 
ity of sixty tons per hour were contracted for, and the first 
convict camp was established at Fidalgo to clear and prepare 
the site. The work, an extremely laborious undertaking, pro¬ 
ceeded slowly, and provoked such criticism that the management 
of the entire quarry problem was delegated to the highway de¬ 
partment, November 2, 1909, in response to the demands of 
the good roads associations. This transfer of authority carried 
with it the incidental control of disbursements. 

Meanwhile, such had been the protest against the plan of the 
Board to make one or two units of the quarry enterprise suc¬ 
cessful before applying the entire appropriation to the pur¬ 
chase of plants, that the design was abandoned and four No. 6 
Austin crushers were contracted for. The two additional plants 
were bought for delivery at the Marshall site near Spokane 
and the Dixie site near Walla Walla. 



16 




August 18, 1909, the Board of Control received and accepted 
on behalf of the state a deed from Lewis county to the crushing 
plant at Meskill, with the understanding that it should be reno¬ 
vated and placed in operation at an early day. Owing to the 
uncertainty which existed as to the sufficiency of funds necessary 
for the establishment and operation of the Fidalgo, Selah, 
Marshall and Dixie quarries, no immediate steps were taken to 
start the Meskill plant. 

In course of time the counties in the southwest division de¬ 
veloped extensive road improvement plans, and the demand for 
crushed rock in that quarter became so clamorous that the 
Board of Control put in a convict camp early m April, 1910. 

When the Meskill quarry was ready for business the question 
of the transportation and delivery of the product with such 
regularity as would insure the constant operation of the plant 
became a vexatious one. Section 2, Chapter 11, Laws of the 
Extraordinary Session, 1909, provided “that so much of said 
materials as the state highway commissioner may not at any 
time require for use on state roads, or state aid roads, shall be 
by said highway commissioner disposed of at cost f. o. b. at 
the place of production to counties, cities and towns, excepting 
in cases where the demands of said counties, cities and towns 
may be in excess of the supply, in which case the state highway 
commissioner shall apportion, deliver and distribute such ma¬ 
terials among the several counties, cities and towns applying, 
in such proportion as in his judgment may seem fair and 
equitable.” 

Thus the management and disposal of the product was placed 
under the control of the highway commissioner, while the man¬ 
agement of the plant and the responsibility for its economical 
operation, in which certainty of a daily discharge and removal 
of the contents of the bunkers was the chief factor, was imposed 
on the Board of Control. 

Moreover, the Board was required to fix the price of the 
product while granted no authority to regulate its disposal or 
delivery to applicants for purchase, 

In order to simplify the situation as much as possible and to 


17 


promote harmony between the two departments thus involved 
in the practical management of the quarry, the Board of Control 
conferred upon the highway commissioner authority to operate 
the quarry, fixing the price of the product at 50 cents per 
cubic yard to state, counties, cities and towns, and 60 cents 
per cubic yard to private individuals, firms and corporations. 

It became obvious before the plant was any length of time in 
operation that the foregoing rates were inadequate. They were 
therefore increased to 60 cents and 80 cents, respectively, and 
the experience up to the time of this report would seem to neces¬ 
sitate another increase. When taken over by the state the 
Meskill plant was greatly deteriorated and an expenditure in 
excess of $5,000 has been required to obtain results that are 
not at all satisfactory after nearly five months of operation. 

The installation of the Fidalgo, Selah and Marshall plants 
proceeded with the arrival from the east of the machinery, until 
it became apparent that the draft on the quarry appropriations 
was so heavy no funds would be available for the placing of 
the Dixie crusher. In the case of Fidalgo alone, where the 
maximum estimate was $85,000, more than twice that sum was 
expended before a wheel was turned. The consequence was that 
on October 1, the highway commissioner requested the Board 
of Control to relieve him of any further responsibility in con¬ 
nection with the state quarries. 

Prior to this action, an examination into the quarry accounts 
by the State Board of Inspection revealed the following: 

CONDITION OF QUARRIES FUND. 


Appropriations .. 

Disbursed from Highway fund. $88,676 78 

Disbursed from General fund. 16,832 37 


$124,000 00 
105,509 15 


Balance, 
Bills payable 


$25,873 08 


$18,490 85 
25,873 08 


Deficit. 

Contingent funds 


$7,382 23 
1,000 00 


Liabilities in excess of appropriations, 


$6,382 23 


—3 

















18 


CONDITION OF GOOD ROADS FUND. 


Received from sale of roclr. 

$3,699 95 
49 00 
2,482 35 

$6,231 30 

1,762 65 

$4,468 65 

Received from rebate on mileage. 

TUllp receivable .. 

Credit Denhof Construction Co., account advance 
payment . 

$126 00 
1,636 65 

Warrant.^ drawn . 




Actual liabilities in excess of appropriations.. 



$1,913 58 





TOTAL EXPENDED AT EACH QUARRY. 

MESKEEL. 


Highway 


General 


Good R’ds 


Bills 


Eund 


Fund 


Fund 


Payable 


Total 


Salaries . 

Subsistence . 

Dry goods . 

Stationery and office expense 

Fuel and oil. 

Repairs . 

Transportation convicts .... 
Permanent improvements ... 

Tools . 

Machinery . 

Furniture and fixtures. 

Transportation and expense 

Miscellaneous . 

Engineer .. 

Maintenance of plant. 

Camp equipment . 


$2,134 

772 

576 

183 

146 

11 

614 

1,041 

510 

1,772 

53 

162 

199 

29 


04 

00 

68 

03 

78 

75 

78 

07 

89 

75 

11 

51 

71 

36 


$967 26 
435 83 


$614 84 
762 15 
24 60 


$8 65 
497 55 
168 28 


27 75 
112 60 


28 28 


4 40 
657 41 
9 75 
66 47 
533 67 
26 05 
32 40 


50 40 
7 75 
35 30 


78 85 


230 23 
73 45 
364 01 


156 77 
2 15 


70 95 


4 64 
29 84 


909 54 


$3,724 

79 

2,467 

53 

769 

56 

210 

78 

287 

66 

241 

98 

743 

03 

2,070 

24 

555 

94 

1,995 

99 

588 

93 

188 

56 

381 

91 

29 

36 

914 

18 

29 

84 


Totals 


$8,208 46 


$2,873 59 


$1,636 65 


$2,481 58 


$15,200 28 


FIDALGO. 


Salaries . 

Subsistence . 

Dry goods . 

Stationery and office expense 

Fuel and oil. 

Repairs . 

Transportation convicts _ 

Permanent improvements ... 

Tools . 

Machinery . 

Furniture and fixtures. 

Transportation and expense. 

Miscellaneous . 

Engineer .. 

Maintenance of plant. 


Highway 

Fund 

General 

Fund 

Bills 

Payable 

Total 

$9,941 07 
5,274 57 
2,468 76 
662 85 

$665 97 
1,062 71 
191 60 

$80 00 
1,804 49 

$10,687 04 
8,141 77 
2,660 36 
728 66 

65 81 


276 08 

9 00 


285 08 

446 55 

446 55 

1,270 80 
13,831 04 
1,643 79 
15,694 48 

2 25 


198 60 

1,469 40 

5,997 16 
62 54 
71 12 
368 50 

718 93 
376 00 
443 75 

20,547 13 
2,082 33 
16,209 35 
370 75 

1,068 50 
1,442 37 
3,052 07 

263 14 
113 83 
90 00 

8 10 
160 66 

1,339 74 
1,716 86 
3,142 07 
1,373 20 

1,373 20 



$56,628 63 

$8,961 38 

$5,610 28 

$71,200 29 


Totals 




















































































19 


MARSHALL. 



Highway 

Fund 

General 

Fund 

Bills 

Payable 

Total 

Salaries . 

$3,731 34 
518 02 

$537 78 
342 96 

$45 OO 
94 85 

$4,314 12 
955 83 

Subsistence . 

Dry goods . 

Stationery and office expense. 

Fuel and oil. 

190 76 

5 00 
13 00 


195 76 
13 00 
3 43 

Repairs . 


3 43 

Transportation convicts . 



Permanent improvements . 

Tools . 

1,319 12 

8 00 
3,800 51 

102 30 

4,816 30 
153 50 
847 25 

6,237 72 
161 50 
4,709 12 

Machinery . 

61 36 

Furniture and fixtures. 

Transportation and expense. 

Miscellaneous . 

379 07 
635 61 
484 57 

91 05 

5,043 24* 

470 12 
5,678 85 
614 57 
2 85 

Engineer . 

130 00 

Maintenance of plant. 

2 85 

Totals. 



$11,067 00 

$1,283 45 

$11,006 42 

$23,356 87 


* $5,000.00 for Washington Water Power Company for pole line. 


TOTAL EXPENDED AT EACH QUARRY. 

SELAH. 


Highway 

Fund 


General 

Fund 


Bills 

Payable 


Total 


Salaries .. 
Subsistence 


$4,284 37 $675 20 

1,071 69 202 23 


$4,959 57 
1,273 92 


Dry goods . 

Stationery and office expense 
Fuel and oil. 


171 42 
12 50 


5 00 


176 42 
12 50 


Repairs . 

Transportation convicts ... 
Permanent improvements .. 

Tools . 

Machinery . 

Furniture and fixtures. 

Transportation and expense 

Miscellaneous . 

Engineer. 

Maintenance of plant. 


1,973 90 
i ,037 00 


342 08 
55 51 
326 36 


2,291 03 
107 42 
67 35 
227 67 
69 55 


$158 42 


18 38 
21200 W* 


4, 

4, 

2 , 


19 50 


423 35 
107 42 
104 35 
246 05 
411 63 
255 51 
326 36 
19 50 


Totals 


$12,274 83 


$3,645 45 


$2,396 30 


$18,316 58 


Pole line to Selah quarry 




































































DIXIE. 



Highway 

Fund 

General 

Fund 

Bills 

Payable 

Total 

Salaries . . . • 





Subsistence . 

$27 22 



$27 22 

Dry goods 



Stationery and office expense. 


$0 77 


77 

Enel and nil. 



Repairs .. 





Transportation eonviets . 





Permanent improvements . 

38 52 



38 52 

Tools .. 



Machinery . 

233 10 


$4,368 50 

4,601 60 

Fnrnitdre and fixtures. 


Transportation and expense. 

110 60 

44 40 


161 00 
10 00 
105 75 

Miscellaneous . 

10 00 

Engineer . 

82 42 

23 33 

Maintenance plant . 


Totals. 





$497 86 

$68 50 

$4,378 50 

$4,944 86 



In short, with the liquidation of the outstanding obligations 
then known of—and the. date of the report was September 17— 
the quarries, in view of the stringent statutory inhibition against 
creating deficiencies in state offices or institutions, should be 
placed in the care of custodians until the legislature could pro¬ 
vide financial relief for the situation. To have adopted this 
timid course, however, would have held up important road con¬ 
struction in several counties, as the Meskill quarry was settling 
down to a steady output with the demands for it constantly 
increasing, while the Fidalgo quarry, although in the experi¬ 
mental stage of opening, promised to round into profitably pro¬ 
ductive form within a short period. After an informal con¬ 
sultation with the legal department of the state, it was there- 
fore^decided to continue the operation of the Meskill and Fidalgo 
plants and to suspend the vouchering of certain accounts the 
creditors were willing to await payment of, until after the legis¬ 
lature made the necessary provision for the completion of the 
quarry plants. 

Immediately upon taking over the quarries, the Board of 
Control commissioned N. A. Carle, an experienced engineer, to 
investigate their condition. His report was such that notwith¬ 
standing the urgent demand for the anticipated product at 
Marshall and Selah the Board of Control could not assume the 
responsibility of experimenting any further than the highway 




































21 

commissioner had gone with these establishments. Before these 
plants could crush any material Mr. Carle estimated a necessary 
expenditure of $9,579 at Marshall and $4,100 at Selah, or a 
total of $13,679, with no funds available for this purpose. In¬ 
asmuch as the engineer’s reports cover the grounds thoroughly, 
with respect both to present conditions and the prospects, they 
are incorporated in this report of the Board of Control. 

FIDALGO ROCK QUARRY. 

Location. —This quarry is located on the north side of Deception 
Pass, on Fidalgo island, Skagit county, Washington. The rock is ob¬ 
tained from the face of the cliff about 200 feet above the water and 
after being crushed is sized and delivered by gravity into bins of a 
bunker at the water's edge and from there handled by water trans¬ 
portation. It is operated by convict labor. 

Output. —The product of the quarry is a trap rock of three sizes, 
which is to be used by the Department of Public Highways for road 
building. 

Equipment. —The plant consists of a rock crusher, revolving sort¬ 
ing screen, storage bunkers and scow loader. 

The equipment is electrically operated by three-phase, 60-cycle, 
alternating current furnished from a steam-generating power plant 
burning crude oil as fuel. 

Rock Crusher. —The rock crusher is an Austin No. 6, rated at a 
crushing capacity of 60 tons of rock per hour, producing broken rock 
up to 2 y 2 inches in diameter. It is operated by a 50-horse-power 
induction motor. 

Revolving Sorting Screen. —This screen is designed to sort the 
broken rock into three sizes, specified as follows: 

No. 1—2 1 / 4 inches to V /2 inches. 

No. 2—114 inches to % inch. 

No. 3 —% inch and less. 

It is operated by a 20-horse-power induction motor. 

Storage Bunker. —This consists of five bins with a combined ca¬ 
pacity of 1,600 cubic yards or 2,160 tons. Two bins each are intended 
for No. 1 and No. 2 product and one for No. 3. Each bin has two out¬ 
let spouts for discharging its contents. 

Scow Loader. —This is a movable belt conveyor which is designed 
to travel along the front of the bunkers and deliver broken rock from 
any one of the ten bin discharge spouts onto scows lying in deep water 
about 50 feet from the side of the bunkers. It is so arranged that it 
will operate at any condition of the tide. 

It has a capicity of loading 100 cubic yards or 135 tons of broken 
rock per hour. It is operated by a 15-horse-power induction motor. 


/ 


QQ 


Quarry Equipment. —The material to be crushed is obtained from 
a point about 75 feet from the crusher and is handled by four Matte- 
son rocker dumping cars of 30 cubic feet or IY 2 tons capacity on a 
narrow-gauge double-track railway system with a switchback at the 
quarry and a loop around the charging hopper in the crusher house. 
As soon as conditions will permit, the switchback in the quarry will 
be changed to a loop and permanent feeding tables will be installed at 
convenient points on the loop. 

Power House. —The power house equipment consists of a 150-horse¬ 
power Babcock & Wilcox water tube boiler, oil fired, a 16x24 simple 
Allis-Chalmers non-condensing Corliss engine operating a three-phase 
60-cycle, 480-volt, 100-kilowatt generator with exciter; and such 
auxiliary equipment as is necessary to operate these units. The elec¬ 
tric current is transmitted to the quarry a distance of about 2,000 ft. 
at the voltage at which it is generated and used there to operate the 
motors specified above. There is provided fuel oil storage capacity 
of 26,000 gallons. Oil is obtained in 500 barrel shipments by water. 

Capacity of Equipment. —The rock-crusher is rated at 60 tons per 
hour crushing capacity and this output can be obtained without any 
difficulty if this amount of rock is delivered to it, as the rock is not 
very hard. 

The revolving sorting screen is of sufficient capacity to handle this 
amount of rock. The experience to date shows approximately the fol¬ 
lowing results as to the percentage of the various sizes produced. 

No. 1—50 per cent. 

No. 2—33 1-3 per cent. 

No. 3—16 2-3 per cent. 

On the basis of a ten-hour day at full capacity at the above per¬ 
centage the plant is capable of producing the following amounts of 
broken rock: 

No. 1—300 tons per day. 

No. 2—200 tons per day. 

No. 3—100 tons per day. 

If no rock is taken away, the bunkers will be filled up when operating 
at full capacity at the following rates: , 

Size Bin Capacity Time to Fill 

No. 1 . 864 tons . 2.88 days 

No. 2 . 864 tons . 4.32 days 

No. 3 . 432 tons . 4.32 days 

This shows that for the percentage of sizes assumed that No. 1 rock 

will have to be taken away faster than the other sizes. With all bins 
empty to start with, the plant can run at full capacity only 2.88 days 
if none of the No. 1 size is taken away. As the bins are not likely to 
be entirely empty at any one time, two days will be about'the limit that 
the plant can run at full capacity without shipping any rock. 

The scow loader is capable of handling 135 tons of broken rock per 
hour, so that the capacity output can be loaded in approximately 4*4 
hours actual loading time. Scows of either 300 or 500 tons capacity 
will be used, so that an allowance must be made for time lost in chang- 








28 


ing scows. Assuming this at VL* hour, the time for loading the capacity 
output will be approximately five hours per day. Tide conditions at 
this point are such that scows will be handled only at flood tide, so 
that there will always be 12 hours available for loading. With 300-ton 
scows, two scows a day must be loaded, but with 500-ton scows, two 
scows will have to be loaded the same day only on every fifth day. 

The power house has an installed capacity of 100 kilowatts or 133 
horse-power for the operation of the crushing plant. The rated capa¬ 
city of the quarry motors are 

Crusher . 50 horse-power 

Revolving screen . 20 horse-power 

Scow loader . 15 horse-power 

Total . 85 horse-power 

It is probable that the crusher in operation does not require mere 

than 35 horse-power and the screen more thah 10 horse-power or a 
total for the three motors of 60 horse-power. Therefore, the power 
house installation has more than sufficient capacity for the service for 
which it is intended. 

The crushing plant and the power house installation has sufficient 
capacity throughout to produce 600 tons of broken rock per day and 
it has been constructed in a good substantial manner. 

There are a few details yet to be completed, such as putting in the 
power house floor, housing the crusher motor, protecting bunker walls 
from the material discharging into the bins, and some small mechan¬ 
ical defects in the scow loader, but nothing that is at all serious. There 
is a bad knock in the main bearing of the power house engine that 
should be remedied. 

Opekatiox. —The complete plant has been in operation for a period 
of about two weeks and it is impossible as yet to form much of an idea 
as to the results obtained or to make any comparisons. However, it 
is very evident from only a casual inspection on the ground that the 
present limited output of the quarry is a question of mining and not 
equipment. 

Between the crusher and the point they first opened up, the face of 
the cliff should be cut into for another bench and a loop installed with 
switches from the present double track and four new cars purchased 
and with this arrangment it will be easy to deliver 72 tons of rock per 
hour to the crusher. 

The part of the cliff immediately back of the crusher is a split off 
from the face of the main cliff and a canyon some 30 feet wide has 
been formed, the bottom of which is about 40 feet vertically above the 
crusher. 

By cutting a 30 to 36-inch diameter tunnel about 140 feet long from 
a point 8 feet above the crusher charging floor to the bottom of the 
canyon back of the split off, a chute will be obtained with an angle of 
35 to 40 degrees through which the rock broken down from the main 
cliff can be charged directly into the crusher. This will be an ideal 
way of handling the rock, because none of the rock broken down will be 






lost, as is the case with the other working points, where much of the 
material will slide down over the bench and into the water until a very 
wide bench has been developed. There will be no need for the use of 
cars at this point for a year or more, even if the entire output is taken 
from this point. A larger output can be obtained here and with less 
cost than at any other point. This tunnel should be cut at the rate of 
five feet per day. 

It is advisable to have the two benches opened up as well as to cut 
the chute, so as to have a reserve working point to keep the crusher 
going at its full capacity. 

The crushing and handling of the broken rock onto the scows is a 
simple matter and the whole problem is to get the rock into the crusher. 
In the future it may be advisable to give some consideration to the pos¬ 
sibility of installing air drills and an air compressor to increase the 
output. Such an installation is usually made to save labor, but that is 
not a consideration in this case. 

Conclusions and Recommendations. — (1) The crushing equipment 
and power house installation is suitable and sufficient for an output 
capacity of 600 tons per day. 

(2) The limiting factor in the production of 600 tons of broken 
rock per day from this quarry is the mining of the rock from the face 
of the cliff and handling it into the crusher. 

(3) Open up another bench and install loop tracks on both benches 
with loading tables. 

(4) Construct a tunnel to tap the bottom of the canyon back of the 
crusher to be used as a rock chute and quarry rock from this part of 
the cliff. 

(5) Secure the services of a competent rock foreman if the present 
man is not able to get results. 

MESKILL ROCK QUARRY. 

Location. —This quarry is located on a spur track on the South Bend 
branch of the Northern Pacific Railroad, about 12 y 2 miles west of Che- 
halis, which is a common point on the Northern Pacific Railroad, the 
Great Northern Railroad and the Oregon & Washington Railroad. 

The rock is obtained from the side of the hill on the north side of 
the spur track at a point about 13.5 feet above the track, and after being 
crushed it is elevated to a screen house about 38.5 feet above the tracks, 
where it is sized and then delivered by gravity into bins of a bunker 
alongside of the spur track. Delivery of the broken rock is made by 
rail shipment from this bunker. 

The quarry is operated by convict labor, and a stockade capable of 
housing 42 convicts, together with the necessary guards, attendants 
and superintendents, has been constructed on the west side of the quarry 
and adjacent to it. 

Output. —The product of the quarry is trap rock of three sizes, 
which is to be used for state roads, state aid roads, county roads, 
municipal roads ahd for general building construction. The output 


is to be sold to applicants according to the above order of service, for 
which the broken rock is to be used. 

Equipment— The plant consists of a gyratory rock crusher, ele¬ 
vator, revolving sorting screen, jaw crusher, storage bunker and power 
house. 

The equipment is operated by a direct drive from a steam power 
plant situated adjacent to the crushing plant. 

Rock Crusher. —The rock crusher is an Austin No. 5, rated at a 
curshing capacity of 33 1-3 tons, or 20 cubic yards of rock per hour, 
producing broken rock up to 3" in diameter. It is operated by direct 
drive from a 12"xl6" side crank Chandler & Taylor engine. 

Elevator. —The elevator is an Austin No. 5, 44 feet long, constructed 
of 10xl5-inch riveted steel buckets bolted to a 16-inch rubber belt. This 
elevator carries all of the material delivered by the crusher to the 
elevated screen, where it is is sorted. It is operated from a pulley 
driven by a back gear on the crusher shaft. 

Revolving Sorting Screen. —This screen is 40 inches in diameter 
and 12 feet in length and is designed to sort the broken rock into three 
sizes, specified as follows: 

No. 1— 2% inches to 1*4 inches. 

No. 2—1 14 inches to % inch. 

No. 3 —% inch and less. 

It is operated with a belt from a pulley driven by the elevator belt 
drive. 

Jaw-Crusher. —This crusher is an 8xl2-inch Blake type jaw-crusher, 
and is designed to crush to 1*4 inches, and less, the materials 
rejected by the screen on account of its being over 2% inches in di¬ 
ameter. It is operated from the main shaft of the engine which drives 
the large crusher. 

Storage Bunker. —This consists of three bins with a combined ca¬ 
pacity of 200 cubic yards. One bin each is used for No. 1, No. 2, and 
No. 3 product. Each bin has one outlet spout for discharging its con¬ 
tents. The bottom of the bunker is 11.5 feet above the top of the rails. 

Power House. —The power house equipment consists of a 60-horse¬ 
power return tabular boiler, a 12"xl6" simple Chandler & Taylor non¬ 
condensing engine direct connected to the crushing equipment, and 
such auxiliary equipment as is necessary to operate these units. The 
plant is now equipped for coal burning, but until recently wood has 
been used as fuel. 

Quarry Equipment. —The material to be crushed is obtained from 
a point about 180 feet from the crusher and is handled by five end 
dumping cars of 15 cubic feet capacity on a narrow-gauge, double-track 
railway system with two dead end delivery tracks at the crusher charg¬ 
ing floor and four loading tracks in the quarry. 

Capacity of Equipment. —The rock crusher is rated at 33 1-3 tons, 
or 20 cubic yards per hour crushing capacity, and this output can be 


26 


obtained if this amount of rock is delivered to it. The rock is very 
hard, but rather brittle. 

The elevator is of sufficient capacity to handle all of the product 
from the crusher. 

The revolving sorting screen is not of sufficient length to properly 
sort the broken rock delivered to it when the crusher is working at full 
capacity. A new perforated cylinder 40 inches in diameter by 16 feet 
long can be purchased and a large part of the balance of the present 
screen can be used in building up the new one. 

The No. 1 bin gets some of all three sizes delivered to it and No. 2 
gets some of No. 2 and No. 3 product. The result is that the separa¬ 
tion for the three sizes is approximately as follows: 

No. 1—63 per cent. 

No. 2—21 per cent. 

No. 3—16 per cent. 

A longer screen could be regulated to reduce these percentages to 
the standard of 40, 40 and 20 per cent. 

On the basis of a 10-hour day at full capacity at the percentage 
obtained in this plant the following amounts of broken rock will be 
produced: 

Size Cubic Yards Per Day 

No. 1 . 126 

No. 2 42 

No. 3 32 

If no rock is taken away, the bunker will be filled up when operating 
at full capacity at the following rates: 

Size Bin Capacity Time to Fill 

No. 1.70 cubic yards.56 days 

No. 2 . 65 cubic yards. 1.55 days 

No. 3 . 65 cubic yards. ... 2.03 days 

This shows that if the plant is operated at full capacity, starting with 
all bins empty, the plant cannot operate for a full day. The present out¬ 
put is approximately 50 per cent of the capacity of the plant. Under 
these conditions the period of operation without shipments is twice 
that of the above values, which means that the plant is limited to a 
full day’s operation only if no shipment of broken rock is«made. 

The cars in this territory available for handling broken rock are 
the gondola type, which are usually 7'-6" wide by 3'-9" high, and 
31'-0" in length, all inside measurements, and approximately 36'-0" 
over all of the bumpers. The limit allowed for loading these cars is 
21.5 cubic yards of No. 1 and No. 2 product, and 25 cubic yards of No. 3. 

The railroad spur passing in front of the bunker has a length avail¬ 
able for the storing of cars of approximately 520 feet, of which 293 
feet is west of the bunker, 32 feet is in front of it and 195 feet is to 
the east of the bunker. The track west of the bunker is used -for empty 
cars and that east of it for loaded cars and the space in front of the 
bunker is for a car in process of loading. Under these conditions it is 
possible to have 8 loaded cars on the standing track west of the bunker, 
but it is only possible to put six empty cars on the standing track for 











loading, and this requires that one of them be placed opposite the 
bunker. The maximum shipment for any one train movement is 129 
cubic yards of No. 1 or No. 2 product and 150 cubic yards of No. 3. 
When working at capacity there must be about three train movements 
every two days. The present local freight train service passing this 
quarry consists of one train per day in either direction. 

The engine in the power house should be capable of delivering about 
50 net horse-power. The demands for power are approximately as 
follows: 

Crusher . 25 horse power 

Elevator . 6 horse power 

Screen . 6 horse power 

Jaw crusher . 10 horse power 

Total . 47 horse power 

From this it is evident that there is just about enough power to oper¬ 
ate the present crushing plant. 


Operation. —The plant has been in operation since May 10, 1910: 
From that date till October 1, the output has been as follows: 


Month 

Cubic Yards 

Average for 26 days 

May . 

J une . 

July . 

August . 

September . .. 

. 1045.5 . 

. 2290.5 . 

. 2002.0 . 

. 3289.5 . 

. 2689.5 . 

. 77.0 cu. yds 


11317.0 . 

. 98.8 cu. yds 


This shows that the average output is approximately 100 cubic yards 
per day for every working day of the month. The superintendent es¬ 
timates that 150 cubic yards a day is the highest average output he 
could expect to obtain with every condition favorable, as this seems to 
be the capacity of the equipment as now installed. 


The revenue from the sale of the broken rock during the above period 
has been as follows: 


Month 

Cubic Yards 

Amount 

Revenue per - cubic yard 

May . 

. 1045.5 .... 

. . . $536 30 .. 

.. 51.3 c 

June . 

. 2290.5 .... 

. . . 1,178 85 . . 

. 51.5 c 

July . 

_ 2002.0 _ 

. . . 1,129 90 . . 

. 56.4 c 

August . . .. 

. 3289.5 .... 

. . . 2,282 20 . . 

. 69.4 c 

September . 

. 2689.5 _ 

. . . 1,874 40 . . 

. 69.7 c 


11317.0 .... 

. . .$7,001 65 . . 

. 61.9 c 


When the quarry was first opened up the price of the broken rock was 
placed at 50c per cubic yard to the State and County and 60c per cubic 
yard to outside parties. On July 11, these prices were raised to 60c 
per cubic yard to the State and County, and 80c per cubic yard to out¬ 
side parties. 









































28 


The customers during the above period were as follows: 


State roads . 

. $81 

60 . 

. 1.1% 

County roads . 

. 3,105 

90 . 

. 44.4% 

Municipalities . 

. 104 

40 . 

.. 1.5% 

Private concerns .... 

. 3,709 

75 . 

. 53.0% 

Total . 

.$7,001 

65 . 

.100.0% 


During the above period the cost of operating the convict 
and quarry was as follows: 


camp 


Month Cost Cubic Yards Cost per Cubic Yard 

May . $997 57 1045.5 95.0 c 

June . 1,071 09 2290.5 46.6 c 

July . 1,126 34 2002.0 56.0 c 

August . 1,249 24 3289.5 37.8 c 

September .... 1,310 61 . 2689.5 48.3 c 


$5,754 85 .11317.0 


50.4 c 


Increase of Output—Installation Cost. —To increase materially 


the output of this quarry, it will be necessary to install a new 40 inch 
by 16 foot cylinder on the present screen, purchase two new cars and 
lengthen the railroad track 125 feet on the west end and 250 feet on 
the east end, making the total length of the spur track available for the 
storing of cars about 900 feet. This will cost, approximately: 


New screen erected . $500 00 

Two new cars delivered . 200 00 

Grading for new track, and trestling and 

furnishing and laying new ties . 800 00 


Total .$1,500 00 

Conclusions. — (1) The crushing equipment and power house in¬ 
stallation is sufficient for an average output of 100 cubic yards per day 
and a maximum output of 150 cubic yards per day. 

(2) The limiting factors in the production of this plant are the 
12'-0" screen and the capacity of the present spur track. 

(3) The output of this quarry can be increased to an average of 
150 cubic yards per day and a-maximum capacity of 200 cubic yards 
per day, with an expenditure of approximately $1,500.00. x 

(4) Broken rock can be produced and sold at a profit for an average 
price of 70c per cubic yard. 

(5) Owing to the demand for broken rock and the lack of competi¬ 
tion, there should be no difficulty in selling the entire output for $1.00 
per cubic yard in the cars. A differential of 20c per cubic yard in 
favor of the State and County can be made and a profit obtained. 


SELAH ROCK QUARRY. 

Location. —This quarry is located on the main line of the Northern 
Pacific Railroad about 2% miles north of the North Yakima depot. 
The rock is to be obtained from the side of the hill on the west side of 
the railroad at a point about 80 feet above the track, and after being 
crushed it will be sized and delivered by gravity into bins of a bunker 






































I 


29 

V 

situated on a siding of the railroad. Delivery of the broken rock is to 
be made by rail shipment from this bunker. 

The quarry is to be operated by convict labor, and a stockade capable 
of housing 48 convicts, together with the necessary guards, attendants 
and superintendents, has been constructed at a point % of a mile 
up the track from the quarry. 

Output. —The product of the quarry will be trap rock of three sizes 
for use by the Department of Public Highways for road building. The 
output in excess of that required for state roads will be for sale to 
counties and towns for road building and to individuals or corporations 
for general construction purposes. 

Equipment. —The plant consists of a rock crusher, revolving sorting 
, screen, elevator and storage bunker. 

The equipment is to be electrically operated by three-phase, 60-cycle, 
2,300-volt alternating current furnished by the Pacific Power & Light 
Company from their sub-station at North Yakima. 

Rock Crusher. —The rock crusher is an Austin No. 6 rated at a 
capacity of crushing 60 tons or 45 cubic yards of rock per hour, pro¬ 
ducing broken rock up to 3 inches in diameter. It is to be operated 
by a 50-horse-power induction motor. 

Revolving Sorting Screen. —This screen is 40 inches in diameter 
and 16 feet in length and is designed to sort the broken rock into three 
sizes specified as follows: 

No. 1—2 % inches to 1% inches. 

No. 2—l 1 /! inches to % inch. 

No. 3 —% inch and less. 

It is to be operated with a belt from a pulley on the main shaft of the 
crusher. 

Elevator. —The elevator is an Austin No. 6, 30 feet long, con¬ 
structed of 12xl7-inch riveted steel buckets bolted to an 18-inch 
rubber belt. This elevator is intended to return for further crushing 
the material delivered by the crusher which has been rejected by the 
screen on account of being over 2% inches in diameter. It is to be 
operated with a belt from a pulley on the main shaft of the crusher. 

Storage Bunker. —This consists of five bins with a combined capa¬ 
city of 1,000 tons or 750 cubic yards. Two bins each are intended for 
No. 1 and No. 2 product and one for No. 3. Each bin has two outlet 
spouts for discharging its contents. The bottom of the bunker is 16% 
feet above the top of the rails. 

Power. —Electric power is to be furnished by a transmission line 
from the Yakima sub-station of the Pacific Power & Light Company. This 
line has been constructed of No. 4 weatherproof wire and provision has 
been made in its design for a carrying capacity of 100 horse power to 
be delivered at the quarry. 

The contract for power is at the rate of 2%c per kilowatt hour for 
the actual current consumed, with no minimum monthly payments re¬ 
quired, but it provides that the state shall pay for the cost of the trans- 


30 


mission line, which will be rebated to the state by a discount of 25 per 
cent, on all monthly bills for power until the total cost of the trans¬ 
mission line, which amounted to $2,175.90, shall have been absorbed. 

At full capacity the monthly cost of power will be about $200.00, from 
which there would be a reduction of about $50.00 each month, covering 
nearly 44 months before the cost of the transmission line has been 
absorbed. This is approximately the number of months the plant 
will be operated during the period of this contract, which is for five 
years. Under these conditions the rate for power for this period will 
be equivalent to 2 1 / 4c per kilowatt hour less 25% or a net rate of 1 7-8c 
per kilowatt hour. 

Capacity of Equipment. —The rock crusher is rated at 60 tons or 
45 cubic yards per hour crushing capacity and this output can be ob¬ 
tained without difficulty if this amount of rock is delivered to it, as the 
rock is only medium hard. 

The revolving sorting screen is of the proper capacity to handle this 
amount of rock. With the elevator for returning oversized material 
rejected by the screen and by properly regulating the crusher jaws and 
the speed of the revolving screen, it is possible to get a wide variation 
in the percentages of the various sizes to be produced. On account of 
the probable demand for broken rock the installation will be adjusted 
for the following percentages of sizes: 

No. 1—40 per cent 

No. 2—40 per cent 

No. 3—20 per cent 

On the basis of a ten-hour day at full capacity at the above percentages, 
the plant will be capable of producing the following amounts of broken 
rock: 

Cubic, Yards 

Size Tons per day per day 

No. 1 . 240 180 

No. 2 . 240 180 

No. 3 .120 90 

600 . 450 

If no rock is taken away, the bunker will be filled up when operating 
at full capacity at the following rates: 


Size 


Bin Capacity 

Time 

to Fill 

No. 1 . . . 

... 400 

tons—300 cubic yards . .. 

.... 1.67 

days 

No. 2 . . . 

... 400 

tons—300 cubic yards ... 

- 1.67 

days 

No. 3 ... 

... 200 

tons—150 cubic yards ... 

.. . . 1.67 

days 


This shows that if the plant is operated at full capacity, starting with 
all bins empty, the plant will have to shut down on the second day 
if no shipments are made. 

The cars in this territory available for handling broken -rock are 
the gondola and the side and bottom dumping cars. These are usually 
9'-6" wide by 4'-0" high and vary in length from 34'-0" to 40'-0", all 
inside measurements, and from 39'-0" to 44'-0" over all of the bumpers. 
The short cars are usually the gondola type and are of wood construc- 


\ 



















31 


tion and limited to 25 tons carrying capacity; the long cars are usually 
side or bottom dumping and are of steel with an allowable carrying 
capacity of 50 tons. As these cars are rated for coal their volumetric 
capacity is more than sufficient for broken rock. 

The railroad siding passing in front of the bunker has a length 
available for the storing of cars of approximately 940 feet, of which 
4G0 feet is south of the bunker, 105 feet is in front of it, and 375 feet 
is to the north of the bunker. The track south of the bunker will be 
used for empty cars and that north of it for loaded cars and the space 
in front of the bunker will be for cars in process of loading. Under 
these conditions it is possible to have a maximum of cars on the siding 
as follows: 

Size of Car Empty Loading Loaded Load of Shipment 

34'-0" . 11 . 2 . 9 . 275 tons, 206 cubic yards 

40'-0" . 10 . 2 . 8 . 500 tons, 375 cubic yards 

It is possible to take away eleven short cars or ten long cars loaded 
at one time and place the same number of empty cars on the siding 
for loading. When working at capacity, if all short cars are used, there 
will have to be more than two train movements a day, and for long 
cars it will mean six trains in five days. Probably no shipments will 
consist entirely of short cars, so that two trains a day will be the maxi¬ 
mum service, but there will be at least one train out every day and an 
extra train every fourth or fifth day when the plant is working at its 
full capacity, The present local freight train service passing this 
quarry consists of two trains per day—one at 11:00 a. m. and one at 
4:00 p. m. 

There is no way of handling broken rock from this quarry by wagon, 
so that any of the product required on the roads near the quarry must 
be unloaded at North Yakima or Selah and handled again by wagons. 
Neither of these towns have any facilities for unloading material except 
by shoveling out of the cars. 

Condition of Installation. —All work on the crushing plant, quarry 
and the stockade was stopped on July 29th of this year and the property 
left in charge of a watchman. The former superintendent estimates 
that he would have completed the crushing plant and stockade in one 
week with his force, which consisted of twelve men, had he been 
allowed to proceed. 

There is sufficient lumber on the ground to complete the crusher 
house and chutes and the stockade. All of the equipment for the crush¬ 
ing plant is on hand except the electric motor, starting-box and the 
wire between the end of the transmission line and the motor. There 
are enough rails for 225 feet of double track from the crusher house 
into the quarry, which is sufficient for the present, but a switch and 
eight li^-ton cars will be required. There is sufficient cook-house equip¬ 
ment for 25 men, and the stove is large enough for a camp of 50 con¬ 
victs and attendants. 










82 


The principal items of work yet to be completed are the following: 

Crushing Plant. —1. Installing motor and all necessary wiring. 

2. Housing motor to make it dust-proof. 

3. Completion of crusher-house floor, walls and roof, and screen- 
house roof. 

4. Completion of bin partitions and ends. 

5. Installation of bin gates. 

6 . Construction of chutes between screen-house and bins. 

7. Construction of chute between screen and elevator. 

8 . Installing all driving pulleys and belting up the crusher, screen 
and elevator. 

9. Installing steel buckets and belt on elevator. 

10. Building about 75 feet of trestle and laying the track from the 
charging floor of the crusher-house to the grade of the bottom of the 
quarry. 

The cost of the completing of the above items would be about $500.00. 
The former superintendent, Mr. R. M. Hardy, has submitted a bid on 
behalf of the Wilson-Hardy Construction Company, of North Yakima, 
that they will complete this work for the state at that figure, provided 
that all material is furnished to them. They have made a similar prop¬ 
osition to Bertelson & Guernsey, of Tacoma, who are trying to arrange 
with the state for the operation of this quarry on their own account. 

Quarry. —1. Strip face of hillside to get at rock. 

2. Grade for tracks in the quarry. 

3. Installation of tracks and switch. 

4. Open up working points. 

The quarry is to be located on the side of a hill at a point on the 
old county road which provides a space wide enough for the first in¬ 
stallation of tracks, and the bench for the bottom of the quarry will be 
cut into the hill at the level of the road. There is 150 feet of available 
face upon which to start taking out rock. 

The above work can be carried on as a regular part of the work to 
be done by convict labor. As this will be previous to the starting of 
the crushing plant it should be charged to installation and not operating 
expense. It should not exceed $300.00 in cost to the state, but if done 
by regular labor it should be estimated at $500.00. 

Stockade. —1. Fill in with earth around the bottom of the high 
board fence. 

2. Install main gate. 

3. Install doors and windows in sentry houses. 

4. Install sewer, showers and toilet for bunk-house. 

5. Install windows and doors in cook-house. 

6 . Install floor in kitchen and additional shelves in pantry. 

The most of this work must be done by regular labor account, but 
the cost of completion of the stockade will not exceed $150.00 for all 
work yet to be done. 


33 


General. —The siding track is so nearly level that there may be 
some difficulty in getting the loaded cars away from the bunker, and 
something in the way of a whip line operated from the crusher motor 
or an electric winch may be required. 

It is possible to increase the storage capacity of the bunker by adding 
a smaller bunker feeding into the lower bunker between the present 
bunker and the screen-house, with its footings in line with the screen- 
house footings. 

At some future time it may be advisable to line the bunker with 
sheet iron, or at least protect the bins opposite where the broken rock 
is discharged into each bin. The gates are the rack-and-pinion type, 
and will probably cause trouble in their operation. 

It may be desirable in the future to install an air compressor plant 
for materially increasing the output. 

It was intended that the stockade should be wired up under the 
power contract, and electric current was to be furnished at ten cents 
per kilowatt hour for this service. 

None of the above items need receive any immediate consideration. 


I 

* 

Cost to Start Operation: 

Crushing Plant — 

Motor and wiring material. $700 00 

Labor as specified above. 500 00 

-$ 1,200 00 

Quarry — 

Eight l^-ton cars, delivered... $900 00 

Switch, spikes, etc. 50 00 

Labor as specified above. 300 00 

Blacksmith tools . 50 00 

Quarry tools, etc. 50 00 

Powder, fuse, etc. 100 00 

-- 1,450 00 

Stockade — 

Labor as specified above. $150 00 

Cook-house equipment . 150 00 

Bunk-house equipment. 250 00 

Attendants’ equipment . 100 00 

Initial stock of groceries. 300 00 

Guns for guards. 120 00 

- 1,070 00 

General — 

Superintendence. $100 00 

Engineering, etc. 150 00 

Contingencies .. 130 00 

-- 380 00 


Total... $4,100 00 

Add, if quarry is not opened up by convict labor. 200 00 

Add, if transmission line must be paid for now. 2,175 90 


Total. $6,475 90 

De'duct, if four cars are used for initial operation. 450 00 


Total. $6,025 90 


3 
































34 


Cost of Broken Rock. —To operate a camp of 40 to 50 convicts here 
it will be necessary to maintain a paid force of about nine men at ap¬ 


proximately the following rates per month: 

Superintendent . $125 00 

Rock foreman . 80 00 

Five guards . 300 00 

One electrician . 75 00 

One general man. 60 00 

Board for nine men, at $15.00. 135 00 

- $775 00 

The cost of boarding convicts and incidental expenses 
will be about 50 cents per day per man; 50 convicts, 

at $15.00 . 750 00 

Cost of electric power estimated at. 200 00 

Quarry tools, powder, fuse, supplies and upkeep of the 

equipment estimated at. 250 00 

Administration charges at Olympia estimated at. 150 00 

Incidentals and contingencies. 150 00 


Total operating cost. $2,275 00 


The output of broken rock at full capacity would be 600 tons or 450 
cubic yards per day for 25 days per month, or a total of 15,000 tons, or 
11,250 cubic yards. This would be at the rate of 15.2 c per ton or 20.2 c 
per cubic yard for the broken rock in cars. This is the maximum con¬ 
dition and one that is not likely to be obtained with the present car 
facilities. 

On the basis of 50 per cent, output, which would be 300 tons or 225 
cubic yards per day, the broken rock would cost 30.4 c per ton or 40.4 c 
per cubic yard in cars. 

In selling broken rock to outside parties, depreciation and interest 
on the cost of the plant should be taken into consideration. The plant 
when completed will cost approximately $30,000.00, and, assuming de¬ 
preciation at 10 per cent, and interest at 6 per cent., the yearly fixed 
charge on this plant will be $4,800.00. The season during which there 
will be a demand for broken rock in this territory is from March 1st 
to November 15th, or 8% months. This gives a monthly fixed charge 
of $564.70, which, on the basis of 50 per cent, output, adds 7.5 c per ton 
or 10.0 c per cubic yard to the cost of the broken rock. 

In selling broken rock in competition with a quarry using a paid 
force it can be assumed that the men will be paid $2.00 per day and 
their board, and that it will take only 75 per cent, of the number of 
men to get out the same amount of rock. The wages and board for 
five guards must be deducted. This is equivalent to adding $1,500.00 
per month to the cost of producing the broken rock. This will add 
20.0 c per ton or 26.7 c per cubic yard to the cost of producing broken 
rock at 50 per cent, output capacity. 


















35 

These results may be summarized as follows: 


Condition 600 tons jier day — 300 tons per day — 

Governing Cost. 1,50 Cu. Yds. per day. 225 Cu. Yds. per day. 


Actual operation. 

Fixed charges . 

Per ton 
.. 15.20 c 
. . 3.75 c 

Per Cu. Yd. 
20.20 c 
5.00 c 

Per ton 
30.40 c 
7.50 c 

Per Cu. Yd. 
40.40 c 
10.00 c 

Total cost to state. 

Extra cost to competitor... 

.. 18.95 c 
.. 10.00 c 

25.20 c 
13.33 c 

37.90 c 
20.00 c 

50.40 c 
26.67 c 

Total . 

.. 28.95 c 

38.53 c 

57.90 c 

77.07 c 

Probable Market. —The 

state and 

county roads 

will be 

the largest 


users of broken rock, although the towns of Ellensburg, North Yakima, 
Prosser and Pasco will use some for sidewalk construction and general 
building purposes. 

The prevailing freight rate of one cent per ton per mile up to 50 
miles and one-half cent per ton per mile above that distance should 
allow of the sale of broken rock 100 miles each way from North Yakima. 

Conclusions. — (1) The crushing equipment is suitable and sufficient 
for an output capacity of 600 tons or 450 cubic yards per day, and 
there should be no difficulty in mining this amount of rock and handling 
it to the crusher. 

(2) The limiting factor in the output of this plant is the storage 
capacity of less than two days under full operation and the lack of 
standing capacity for loaded and empty cars on the railroad siding in 
front of the bunker. 

(3) Broken rock can be produced and sold at a profit for 60 cents 
per ton or 80 cents per cubic yard, which is considered a reasonable 
price in this territory. 

(4) There will be a market for all that the crushing plant can 
produce at 50 per cent, output capacity. 

(5) The plant can be put into operation in from two to three weeks 
at a total cost of $4,100.00, exclusive of the payment of the cost of the 
transmission line. 

MARSHALL ROCK QUARRY. 

Location. —This quarry is located on a spur track on the Palouse 
and Lewiston and Genesee branch of the Northern Pacific railroad about 
one and one-half miles south of Marshall, which is about nine miles west 
of Spokane and is a common point on the Spokane, Portland & Seattle 
railway and the Northern Pacific railroad. 

The rock is to be obtained from the side of the hill on the west side 
of the spur track at a point about fifteen feet above the track, and 
after being crushed it is elevated to a screen-house about 52 feet above 
the tracks, where it is sized and then delivered by gravity into bins of 
a bunker built over the spur track. Delivery of the broken rock is to 
be made by rail shipment from this bunker. 

The quarry is to be operated by convict labor, and a stockade capable 
of housing 48 convicts, together with the necessary guards, attendants, 















36 


and superintendents, has been constructed at a point on the hill and 
to the northwest and about one-quarter mile from the quarry. 

Output. —The product of the quarry will be trap rock of three sizes 
for use by the department of public highways for road-building. The 
output in excess of that required for state roads will be for sale to 
counties and towns for road-building and to individuals and corporations 
for general construction purposes. 

Equipment. —The plant consists of a rock-crusher, elevator, revolv¬ 
ing sorting screen and a storage bunker. 

The equipment is to be electrically operated by three-phase, 60-cycle, 
2300-volt, alternating current furnished by the Washington Water 
Power Company, of Spokane, from their Jamieson sub-station. 

Rock-Crusher. —The rock-crusher is an Austin No. 6, rated at a 
crushing capacity of 60 tons, or 45 cubic yards of rock per hour, pro¬ 
ducing broken rock up to three inches in diameter. It is to be operated 
by a 50-horse-power induction motor. 

Elevator. —The elevator is an Austin No. 6, 60 feet long, constructed 
of 12xl7-inch riveted steel buckets bolted to an 18-inch rubber belt. 
This elevator is intended to carry all of the material delivered by the 
crusher to the elevated screen, where it is to be sorted. It is to be 
operated with a belt from a pulley on the main shaft of the crusher. 

Revolving Sorting Screen. —This screen is 40 inches in diameter 
and 16 feet in length and is designed to sort the broken rock in three 
sizes, specified as follows: 

No. 1—2 y 2 inches to 1% inches. 

No. 2 —114 inches to % inch. 

No. 3 —% inch and less. 

It is to be operated with a belt from a pulley driven by the elevator 
belt drive. 

Storage Bunker, —This consists of five bins, with a combined capac¬ 
ity of 550 tons, or 412 cubic yards. Two bins each are intended for 
No. 1 and No. 2 product and one for No. 3; each bin has two outlet 
gates for discharging its contents. The bottom of the bunker is 19.5 
feet above the top of the rails. 

Power. —Electric power is to be furnished by a transmission line 
from the Jamieson sub-station of the Washington Water Power Com¬ 
pany, of Spokane. This line has been constructed of No. 00 bare wire 
from the sub-station to Marshall and of No. 0 bare wire from Marshall 
to the quarry. Provision has been made in the design of this line for 
a carrying capacity of 100 horse-power to be delivered at the quarry. 

The contract for power is at the rate of 2% cents per kilowatt hour 
for the actual current consumed, with no minimum monthly payment 
required, but it provides that the state shall pay for the cost of the 
transmission line up to $5,000.00, which will be rebated to the state by 
a discount of 25 per cent, on all monthly bills for power until the 
total amount paid by the state shall have been absorbed. The lighting 
of the stockade can be done .under this contract at the regular rate 


37 


for power, but requires the construction of a transmission line from 
some point where the power is being used to the stockade and the 
wiring up of same. 

At full capacity, the monthly cost of power will be about $300.00, 
from which there would be a reduction of about $75.00 each month, 
covering nearly 67 months before the cost of the transmission line has 
been absorbed. The season during which broken rock is required is 
about 8% months each year, so that it will take eight years to absorb 
the installation payment made by the state, which is the minimum 
length of time that the contract is to remain in force. Under these con¬ 
ditions, the rate for power for this period will be equivalent to 2 y 2 cents 
per kilowatt hour less 25 per cent., or a net rate of 1 % cents per kilo¬ 
watt hour. The payment of $5,000.00 by the state toward the cost of 
this transmission line, which amounted to a total of over $13,000.00, is 
a much less amount than what the state would have had to pay if it 
had installed its own power plant for this service. 

Capacity of Equipment. —The rock-crusher is rated at 60 tons, or 45 
cubic yards per hour crushing capacity, but owing to the fact that this 
rock is rather hard, the output capacity will be rated for the purpose 
of this report at 50 tons, or 37.5 cubic yards per hour. 

The elevator is of sufficient capacity to handle all of the product 
from the crusher, because it is designed to handle the rated capacity of 

,, * * r , ■ 

60 tons or 45 cubic yards per hour. 

The revolving sorting screen is of the proper capacity to handle this 
amount of rock. By returning the over-sized material rejected by the 
screen and properly regulating the opening of the crusher jaws and 
the speed of the revolving screen, it is possible to get a wide variation 
in the percentages of the various sizes to be produced. On account of 
the probable demand for broken rock in this territory, the installation 
will be adjusted for the following percentages of sizes: No. 1, 40 per 
cent.; No. 2, 40 per cent.; No. 3, 20 per cent. 

On the basis of a ten-hour day at full capacity at the above percent¬ 
ages, the plant will be capable of producing the following amounts of 
broken rock: 

Cubic Yards 

Size Tons per day per day 

No. 1 . 200 150 

No. 2 . 200 150 

No. 3 . 100 75 

500 375 

If no rock is taken away, the bunker will be filled up when operating 
at full capacity at the following rates: 

Size Bin Capacity 

No. 1 . 207 tons—155 cubic yards 

No. 2 . 226 tons—169 cubic yards 

No. 3 . 117 tons— 88 cubic yards 

550 412 

This shows that if the plant is operated at full capacity, starting with 


Time to Fill 
1.035 days 
1.130 days 
1.170 days 


















38 


all bins empty, the plant will have to shut clown on the second clay if 
no shipments are made. 

The cars in this territory available for handling broken rock are 

the gondola and the side and bottom dumping cars. These cars are 

usually 9'-6" wide by 4'-0" high and vary in iength from 34'-0" to 40'-0", 
all inside measurements, and from 39'-0" to 44'-0" over all of the 

bumpers. The short cars are usually of the gondola type and are of 

wood construction and limited to 25 tons carrying capacity; the long 
cars are usually side or bottom dumping and are of steel with an 
allowable carrying capacity of 50 tons. As these cars are rated for 
coal, their volumetric capacity is more than sufficient for broken rock. 

The railroad spur, over which the bunker has been erected, has a 
length available for the storing of cars of approximately 2,670 feet, of 
which 1,340 feet is south of the bunker, 70 feet is uncrer it, and 1,260 
feet is to the north of the bunker. The track north of the bunker, 
which has the dead end, will be used for loaded cars and that south of 
it for empty cars. The ideal way of handling these cars would be to 
reverse the above, so that as fast as cars were loaded they could be 
pushed back toward the main track and a trainload could be removed 
without interference with the balance of the empty cars. However, 
this is impossible, because of the down grade from the main track to 
the end of the spur track. This grade is such that the freight locomo¬ 
tives with which this line is equipped will probably not be able to 
handle more than four loaded cars at one time from the spur track on¬ 
to the main track. However, this is not a serious matter, as the 
passenger service on this line is not frequent and the extra time re¬ 
quired will not cause any train interference. At some future date it 
may be advisable to extend the dead end of the spur and connect it into 
the main line. 

Under the conditions, it is possible to have a maximum number of 
cars on the spur track as follows: 

Size of Car Empty Loaded Load of Shipme?it 

34'-0". 34 . 34 . 850 tons, 638 cubic yards 

40'-0". 30 . 30 .1,500 tons, 1,125 cubic yards 

It is possible to take away 34 short cars, or 30 long cars, and place 
the same number of empty cars on the south end of the spur track 
ready for loading When working at capacity, if all short cars are used, 
there will have to be a train movement every 1.7 days, but if all long 
cars are used, one train movement every three days will be sufficient. 

Although the bunker capacity at this quarry is limited to about one 
day’s run at full capacity, the excellent facilities for storing empty and 
loaded cars, combined with the frequent local train service passing 
this point, provides a combination that should allow of the handling 
of the output capacity of this quarry without any trouble. The present 
local freight service passing this quarry spur consists of two south¬ 
bound trains in the morning and two north-bound trains in the after¬ 
noon. During the harvest season there are one or more special trains 
each day in addition to the regular service 








39 


Condition of Installation. —All work on the crushing plant was 
stopped the latter part of July and the property left in charge of a 
watchman 

The stockade was completed and ready for service about July 1, 
except for the erection of the brick stack for the furnace for the water 
heater and the installation of a 2%"x4" duplex electric-driven service 
pump for the water supply 

The work yet to be done could have been completed in a week or 
ten days, if the crusher motor had been received and the work had 
been allowed to proceed 

There is sufficient lumber and cement on the ground to complete 
any work yet to be done on the crushing plant or the stockade. 

All the equipment for the crushing plant has been purchased and 
is on hand except the electric motor, starting box, and the wiring 
material between the end of the transmission line and the motor. The 
bin gates have been ordered and paid for and are now being held for 
shipping instructions at the shops of the Union Iron Works, in Spokane. 
Rails for a double-track between the crusher-house and the quarry 
will be required, together with two switches and eight 1*4-ton cars 

There is sufficient cook-house equipment for 20 men and the stove 
on hand is large enough for a camp of 50 convicts and attendants. 

The principal items of work and material yet to be furnished are 
the following: 

Crushing Plant. —1. Construction of crusher motor foundation. 

2. Installing motor and all necessary wiring. 

3. Housing motor to make it dust-proof. 

4. Enclosing crusher-house charging-floor. 

5. Completion of erection of the elevator. 

6 . Building short chute from crusher discharge to elevator. 

7. Building chute between elevator discharge and screen inlet. 

8 . Completion of over-size chute to charging-floor. 

9. Put covers on all chutes from the revolving screen. 

10. Installation of bin gates. 

11. Installing all driving-pulleys and belting up the crusher-elevator 
and screen. 

12. Installing steel buckets and belt on elevator. 

13. Laying two tracks from the crusher-house to the quarry, a dis¬ 
tance of about 50 feet. 

The cost of completing the above work will be about $250.00. 

Quarry. —1. Cut a bench for a loading track to be installed par¬ 
allel to the face of the quarry. 

2. Connect the double-track from the crusher-house to the quarry- 
track by a right- and left-hand switch. 

3. Open up working points. 

The quarry is to be located on the side of a hill at a point about 
15 feet above the bottom land where the crushing plant is located, and 
at a distance from it of about 50 feet. The entire face of the quarry is 


40 


available for taking out rock, and a considerable quantity of loose rock 
can be supplied to the crusher at once in the installation of the loading- 
track in the quarry. 

The above work can be carried on as a regular part of the work to 
be done by convict labor. As this will be prior to the starting of the 
crushing plant, it should be charged to installation and not operating 
expense. It should not exceed $150.00 in cost to the state. 

Stockade. —1. Complete brick stack for the furnace for the water 
heater. 

2. Install electric-driven pump for water service and build pump¬ 
house. 

3. Construct about 1,350 feet of transmission line from the crush¬ 
ing-plant to the pump-house. 

This work must be done by regular labor account. 

General. —At sonie future time it may be advisable to line the 
bunker with sheet iron, or at least protect the sides of the bins oppo¬ 
site where the broken rock is discharged into each bin. 

It may be desirable in the future to install an air-compressor plant 
for materially increasing the output—an outfit of this kind consisting 
of one 12 1 / i"xl2" Ingersoll-Rand air-compressor, belt-driven, 310 cubic 
feet capacity; two 3 1 / 4" Ingersoll-Rand air-drills, two 50'-lengths five- 
ply hose, with couplings, three sets machine drill steel, one air receiver, 
40'-12" double belt, was ordered for this quarry, but has been held up 
by Caldwell Bros., of Seattle, on account of lack of funds. A 50-horse¬ 
power motor to operate the above compressor was ordered from the 
General Electric Company, and has been held up under the same - 
conditions. The air-compressor foundation has been constructed, but 
the motor foundation has not been built. The building for housing 
the air-compressor and the motor has not yet been constructed. 

It was intended that the stockade should be wired up by the state 
and electric current used from the service line to the water-supply- 
pump motor by building one-quarter mile of transmission line. The 
regular rate of 2 y 2 cents per kilowatt hour would prevail and the cur¬ 
rent would be taken from the low tension side of the transformers 
supplying the pump motor. 

None of the above items need receive any immediate consideration. 
Cost to Start Operation: 


Crushing Plant — 

Motor and wiring material. $700 00 

Labor as specified above. 250 00 

- $950 00 

Quarry — 

Eight lVk-tons cars delivered. $900 00 

Switches, spikes, etc. 100 00 

300 feet track, spikes, etc. 100 00 

Labor as specified above. 150 00 

Blacksmith’s tools . 50 00 

Quarry tools, etc. 50 00 

Powder, fuse, etc. 100 00 


1,450 00 













41 


Stockade — 

Complete brick stack. $25 00 

Cook-house equipment . 180 00 

Bunk-house equipment . 250 00 

Attendants’ equipment . 100 00 

Initial stock of groceries. 300 00 

Guns for guards. 120 00 

-- 975 00 

Water Supply —- 

Pump-house and foundations. $125 00 

Pump for water supply.. 109 00 

Three-horse-power motor . 85 00 

Transformers . 95 00 

Control apparatus, etc. 60 00 

Labor erecting above. 50 00 

1,350 feet transmission line. 300 00 

-- 824 00 

General —• 

Superintendence . $100 00 

Engineering, etc. .... 150 00 

Contingencies . 130 00 

- 380 00 


Total.$4,579 00 

Add, if transmission line must be paid for now. 5,000 00 


Total.$9,579 00 

Deduct, if four cars are used for initial operation. 450 00 


Total.$9,129 00 

Cost of Broken Rock. —To operate a camp of 40 to 50 convicts here 
it will be necessary to maintain a paid force of about nine men at 
approximately the following rates per month: 

Superintendent . $125 00 

Rock foreman . 80 00 

Five guards . 300 00 

One electrician . 75 00 

One general man. 60 00 

Board for nine men at $15.00. 135 00 

-* $775 00 

The cost of boarding convicts and incidental expenses 
will be about 50 cents per day per man. 

Fifty convicts at $15.00. 750 00 

Cost of electric power estimated at. 240 00 

Quarry tools, powder, fuse, supplies and upkeep of the 

equipment estimated at. 250 00 

Administration charges at Olympia estimated at. 150 00 

Incidentals and contingencies. 150 00 


Total operating cost.$2,315 00 

The output of broken rock at full capacity would be 500 tons or 375 
cubic yards per day for 25 days per month, or a total of 12,500 tons 
or 9,375 cubic yards. This would be at the rate of 18.5 cents per 
ton, or 24.7 cents per cubic yard for the broken rock in cars. This is 
the maximum condition and one that should be obtained after the 
quarry has been operating several months. 











































42 


On the basis of 50 per cent, output, which would be 250 tons, or 
187.5 cubic yards, per day, the broken rock would cost 37.0 cents per 
ton, or 49.3 cents per cubic yard in cars. 

In selling broken rock to outside parties, depreciation and interest 
on the cost of the plant should be taken into consideration. The plant 
when completed will cost approximately $30,000.00, and assuming de¬ 
preciation at 10 per cent, and interest at 6 per cent., the yearly fixed 
charges on this plant will be $4,800.00. The season during which there 
will be a demand for broken rock in this territory is from March 1 to 
November 15, or eight and one-half months. This gives a monthly 
fixed charge of $564.70, which, on the basis of 50 per cent, output, 
adds 9.0 cents per ton, or 12.0 cents per cubic yard, to the cost of the 
broken rock. 

In selling broken rock in competition with a quarry using a paid 
force, it can be assumed that the men will be paid $2.00 per day and 
their board and that it will take only 75 per cent, of the number of men 
to get out the same amount of rock. The wages, board and equipment 
for five guards must be deducted. The net result is equivalent to 
adding $1,500.00 per month to the cost of producing the broken rock. 
This will add 24.0 cents per ton, or 30.0 cents per cubic yard, to the 
cost of producing broken rock at 50 per cent, output. 


These results may be 

summarized 

at follows: 



Condition 

Governing Cost. 

500 tons per day — 

375 Cu. Yds. per day. 

Per ton Per Cu. Yd. 

250 tons per day- 
187.5 Cu. Yds. per day. 
Per ton Per Cu. Yd. 

Actual operation . 

Fixed charges . 

. 18.5 c 

. 4.5 C 

24.7 c 

6.0 c 

37.0 c 
9.0 c 

49.3 c 
12.0 c 

Total cost to state. ... 
Extra cost to competitor. 

. 23.0 c 

. 12.0 c 

30.7 c 
15.0 c 

46.0 c 
24.0 c 

61.3 c 
30.0 c 

Total . 

. 35.0 c 

45.7 c 

70.0 c 

91.3 c 


Probable Market. —The state and county roads south of Spokane 
will be the largest users of broken rock, although considerable of the 
product can be sold in Spokane, provided that it can be delivered 
into the city at from $1.25 to $1.50 per cubic yard. 

At the present time, there is only one contract, amounting to 5,000 
cubic yards, for two and one-half miles of road out of Spokane, which 
requires broken rock. As soon as broken rock is available, it is 
probable that the Creek road from Spokane to Spangle, a distance of 
17 miles, will be authorized, and also some 20 miles of road from 
Spangle south into the Palouse country. 

Unless the special freight rate can be secured for broken rock to 
be sold in Spokane, it will be impossible to count on this market, as 
the rate is three cents per hundred pounds, which is 60 cents per ton, 
or 80 cents per cubic yard. Under the special rate, the freight will be 
10.5 cents per ton, or 14.0 cents per cubic yard. One crushing plant 
in Spokane sells its product at $1.25 per cubic yard, and another, 
nearer the center of the city, at $1.50 per cubic yard. 















43 


Conclusions. — (1) The crushing equipment is suitable and suffi¬ 
cient for an output capacity of 500 tons per day, or 375 cubic yards, 
and there should be no difficulty in mining this amount of rock and 
handling it to the crusher. 

(2) The output of this plant should exceed that of any of the other 
state crushing plants, as the conditions are the most favorable for 
operating at capacity and for the handling of the output. 

(3) Broken rock can be produced and sold at a profit at 60 
cents per ton, or 80 cents per pubic yard. 

(4) If the special freight rate of one cent per ton per mile can be 
obtained, the broken rock can be sold at $1.10 per cubic yard in cars 
at the quarry and compete with the market price in Spokane. 

(5) There is a limited market for broken rock at the present time. 

(6) The plant can be put into operation in from two to three 
weeks, at a cost of $4,579.00, exclusive of the payment of the cost of 
the transmission line. 


Condition of Finances. 

On the 30th of September, 1910, the following were the finan¬ 
cial conditions with respect to the quarries: 

Resources. 

Appropriations . $124,000 00 

Good Roads Fund, created by receipts from the sale of rock.. 4,936 70 

Bills receivable from sales of rock (Meskill). 2,089 40 

Bills receivable from sales of rock (Fidalgo). 292 00 

Total.$131,310 10 

Deducting the foregoing amount from the total of expendi¬ 
tures, $144,807.29, the actual vouchered outlay up to Septem¬ 
ber 30 w T as $125,901.14, which left available for the operation 
of the defective Fidalgo and Meskill quarries the sum of 
$5,416.96. 

Operations at Fidalgo and Meskill. 

The natural difficulties in the way of opening the Fidalgo 
quarry were intensified by a heavy slide at the very outset, and 
as a consequence, from the first day of operation, August 27, 
to September 30, inclusive, the product only showed a daily 
average of 33 1-5 yards. Conditions will constantly improve 
for the better, it is anticipated, with the expectation that within 
three or four months the daily output will have passed beyond the 
average of 200 cubic yards, which will make certain a self-sup¬ 
porting revenue. Demand for the product is insured indefinitely. 

At Meskill, the design is to improve the trackage facilities and 







make such alterations in the plant as will raise the daily capacity 
to the minimum of 150 cubic yards, a point at which it can be 
maintained throughout the winter, so far as the demand is 
concerned. 

In the estimation of the Board of Control, the future for the 
quarries is reassuring. At least two of them should be developed 
beyond the experimental stage by the time the legislature con¬ 
venes. 

It should be the essential principle of their management that 
the general fund of the state be reimbursed for the investment 
made in them by the taxpayers; such reimbursement to accrue 
from the profits of the materials sold to individuals and cor¬ 
porations. 

The convicts employed in the quarry camps annually will 
represent a considerable outlay on the part of the taxpayers in 
the form of costs for prosecution, and their maintenance prior 
to assignment to quarry work. This item of expense to the 
state in the administration of justice should also be considered 
as a factor in fixing the price of crushed rock delivered to indi¬ 
viduals and corporations. The Good Roads Fund already estab¬ 
lished is to all intents and purposes a revolving fund, which 
should be amplified for the completion of the other quarries. 

RECOMMENDATIONS. 

The experience of the Board of Control with the quarry 
problem is conclusively convincing that the management of the 
plants should reside in the highway department. The labors 
and duties involved are kindred to those of the highway com¬ 
missioner, and it would best serve the progressive policy of the 
state in the matter of modern road construction to place the 
management of the quarries in the hands of a competently paid 
man of experience, to be appointed by the governor, as the 
head of a business bureau established in the highway department. 

A. E. Cagwin, Chairman , 

E. D. Cowen, 

H. T. Jones, 

State Board of Control. 


45 


Convicts at Road and Quarry Camps. 


The employment of convict labor at the road and quarry 
camps during the past year tested the maximum resources of 
the penitentiary. The total number of convicts sent out to the 
several camps, between May, 1909, and September 30, 1910, was 
501. Of this number, 392 were assigned to road and quarry 
work, between October, 1909, and September, 1910. The total 
number discharged, escaped, paroled and returned to the peni- 
tenitary, or transferred, was 259. Following was the record 


of escapes: 

Methow . 1 

Blanchard . 10 

Keechelus. 6 

Fidalgo . 3 

Meskill . 1 

Lyle . 13 

Total . 34 


On the first of October, 1910, the census of the convict camps 


was as follows: 

Blanchard . 91 

Fidalgo . 29 

Meskill . 32 

Lyle . 89 

Total . 241 


In order to promote state road construction the jute mill at 
the penitentiary was closed for the summer and fall, thus re¬ 
leasing nearly 300 men for other occupations. One hundred of 
them were employed in the construction of the new shop row, 
which was erected with remarkable celerity, and is one of the 
most creditable works yet undertaken with institutional labor. 
The remaining 200 jute mill convicts, with all others available, 















46 


were moved out to the road and quarry camps, where they have 
performed valuable service for the state. 

The first assignment of men sent to Fidalgo in August, 1909, 
were assured and received final discharge after six months faith¬ 
ful work, it having been the original intention to make this 
period the parole term for all the convicts transferred to road 
and quarry camps. On the recommendation of the highway de¬ 
partment, this design was changed so as to leave the time for 
final discharge in each instance to be determined by the camp 
superintendents, supported by the assent of the highway com¬ 
missioner. With a maximum time assignment to the camps for 
one year, within which the men would be discharged on the basis 
of comparative value of work and interest displayed, it was 
thought the industrial efficiency of the camps would be promoted. 

It turned out on the contrary that the secondary plan caused 
demoralization. The prison board, to relieve the situation, 
adopted a rule that all assignments of convicts to road and 
quarry camps should be made for one year, the men to receive 
an abatement of ten days for every thirty during good be¬ 
havior, thus fixing the term of parole service at nine months. 
The effect was beneficial, as anticipated. 

Erroneous ideas are entertained as to the authority of the 
board of control, as the managing board of the penitentiary, 
in the matter of concentrating convict labor on the state road 
and quarry work. As a matter of fact, the only convicts avail¬ 
able for these assignments are those in excess of the employed 
force necessary to the prison economy who have served their 
minimum sentence; or desperate criminals, second timers and 
habituals not coming under the reform provisions of the inde¬ 
terminate sentence act. The excessive number of escapes is 
partly accounted for by the chances taken with the hardened 
class of convicts. 

Preferentially, under the law, the prison board must grant 
paroles to first time convicts who are assured individual keep, 
care and wages. During the period that 392 men were trans¬ 
ferred from the penitentiary to the camps, 356 were released 
on parole. 


47 


If the state is to develop to its fullest possibilities the plan 
of building roads and operating quarries with convict labor, 
additional legislation will be required. One proposal the board 
of control lias informally discussed, is, that first time men, im¬ 
mediately after sentence, be assigned as recruits to be trans¬ 
ferred directly to designated camps. A saving of the transpor¬ 
tation charges to Walla Walla would result; and this primary 
class of convicts, who are subjects for quick reform, could be 
converted into potential labor units during the term now pre¬ 
scribed for punishment. 

If continued at the camps beyond the period of minimum 
sentence, as if on parole, provision might be made for the pay¬ 
ment to them at time of final discharge of the accumulation of 
a minimum daily or monthly wage paid during the parole period. 
Indeed, it is an open question, whether the legislature, in all 
justice, and with a view of promoting the efficiency of the camps 
while insuring the discharged convicts against the evil influence 
of penury, should not provide for the payment to them from the 
highway fund of a fixed monthly compensation, which, though 
relatively small for the work done, would save them from the 
trials of enforced idleness after discharge and the consequent 
temptations to relapse. 

Administering the Indeterminate Sentence Law. 

One of the most interesting functions of the board of control 
is to assemble quarterly at Walla Walla as majority members of 
the state prison board, to administer the indeterminate sentence 
law. Since this beneficient statute went into effect in 1907, the 
total number of prisoners paroled from the penitentiary after 
having served minimum sentence, was 635, and of this total 356 
were tried out during the last biennium. 

The total escapes 1909-10 were forty-one, four of whom were 
captured. Twenty-five were returned for violation of parole. 
The percentage of escapes and parole violators was 18.5, leav¬ 
ing a record of speedy recovery of citizenship in the case of 81.5 
of the paroles granted. 

The paroled men earned a total of $114,139.79 during the 
two years or an average of $41.02 per month per man. 


48 


In order to insure the best possible results from the parole 
system, provision should be made for the protection of both 
the prison board and the paroled men. The state has no officer 
authorized to investigate the moral character, the antecedents, 
the actual business or the responsibility, of the person who files 
application as “first friend.” It is essential that the board be 
thoroughly advised in these particulars in order that the mis¬ 
take be not made of committing a paroled convict to the foster¬ 
ing care of a “first friend” whose purpose is wholly mercenary 
and selfish; or who may be animated by the design of conniving 
at an escape. Many escapes from parole are attributed to the 
fact that the men have been treated meanly, or imposed upon 
beyond reasonable endurance by presumed benefactors. 

To remedy this evil the board of control recommends that 
additional traveling guards be provided for both the peniten¬ 
tiary and training school, such guards to serve under the direc¬ 
tion of the board as parole investigating officers, when their 
duties take them to the neighborhoods from which special in¬ 
formation is desired. At present, from the moment a prisoner 
is released on parole, the prison board obtains no knowledge of 
his conditions or conduct, save what is contained in correspond¬ 
ence approved by the “first friend.” By enlarging the traveling 
guard force, and qualifying it as a parole contingent, every 
man under parole could be regularly visited and made to feel 
that the state retained a friendly concern for his welfare and 
reclamation, up to the day of his final discharge. 

It is in rare instances the prosecuting attorney or judge files 
with the commitment pigeon-holed in the prison board record 
that review of the testimony and the circumstances of conviction 
which are so helpful, indeed essential, to a proper administra¬ 
tion of the indeterminate sentence law. 

Section 3 of the law as enacted in 1907 provided: “It shall 
be the duty of the judge before whom the prisoner is tried and 
convicted, also of the county attorney, to furnish such prison 
board, together with the warrant of commitment, all informa¬ 
tion that they can give in regard to the career of the prisoner 
before the committal of the crime for which he was sentenced, 


49 


stating to the best, of their knowledge whether the prisoner was 
industrious or not, of good character or not, what his associates 
were, what his disposition was, and all the other facts and cir¬ 
cumstances that may tend to throw any light upon the question 
as to whether such prisoner is capable of again becoming a good 
citizen; and the said prison board shall also have the power to 
call upon any other official or person for similar information, 
and where practicable shall procure such information from the 
people who have known the prisoner.” 

In the enactment of the criminal code last session the forego¬ 
ing requirement was heedlessly repealed, despite the fact it was 
one of the most essential features of the indeterminate sentence 
law. 

\ 

The board of control recommends that the repealed section be 
re-enacted as an amendment to the criminal code. 


FINANCIAL REPORT ON STATE ROCK CRUSHING PLANTS, 
BROUGHT DOWN TO NOVEMBER 22, 1910. 

DOWN TO NOVEMBER 22. 1910. 


LIABILITIES. 


Quarry. 

Curren 

t. 

Deferred. 

Total. 

Meskill 

$2,145 

18 


$2,145 

18 

F i o a1go . 

3.115 

87 


3,115 

87 

Marshall . 

1,868 

50 

$5,845 00 

7,713 

50 


2.418 

16 


2,418 

16 

Dixie . 

3 

00 

4,368 50 

4,371 

50 


$9,550 

71 

$10,213 50 

$19,764 

21 

Estimated : 











00 

^.mcskiii pay ion, u. . . 
Fidalgo pay roll. November... 




. 750 

00 

Orders for supplies outstanding 




. 800 

00 


Deferred payments on Marshall quarry include following : 

Pole line (W. W. P. Co.). 

Elevator (Beall Co.). 

Dixie deferred payments : 

Crusher (Beall Co.). 

Elevator (Beall Co.). 


$5,000 00 
845 00 

3.474 75 
803 75 


$10,213 50 


Purchases 
Marshall . . 

Selah . 

Fidalgo .. . 
Marshall . . 

Selah . 

Fidalgo . . . 


Made and Cancelled, but Necessary for Complete 


Compressor.Caldwell Bros. 

Compressor.Caldwell Bros. 

Compressor.Caldwell Bros. 

Motor.General Electric Co 

Motor.General Electric Co 

Motor.General Electric Co. 

/ . 


Equipment. 

. . $2,019 80 

1,951 40 
1,749 80 
1.502 30 
. . 1.474 30 

696 85 


$9,394 45 


Grand total 


$31,203 66 









































50 


ASSETS. 


Balance from General Fund... 
Balance from Good Roads Fur 
Balance due for rock. Meskill. 
Balance due for rock. Fidalgo. 


Rock paid for in advance. 


EXPENDITURES TO NOVEMBER 25th. 


Highway. 

Fidalgo .$61,845 46 

Meskill . 8,775 51 

Selah . 12,660 95 

Marshall . 11,568 36 

Dixie . 497 86 


$95,348 14 


General. 

$11,198 35 
2,982 94 
3,645 45 
4,562 70 
68 50 

$22,457 94 


Meskill Good Roads Fund. 


May .... 
.Tune 

July .... 
August . . 
September 
October . 


VALUE OF ROCK SIIIFPED TO. DATE 

Meskill. 

. $537 85 


(November 22). 
Fidalgo. 


. 1.178 85 

. 1,129 90 

. 2,282 20 

. 1,848 30 

. 2,040 20 

November . 1.009 50 


$10,026 80 


$292 50 
884 00 
476 00 

$1,652 50 


COMPARISON MESKILL QUARRY, AUGUST, SEPTEMBER AND OCTOBER. 


1910. Rock Sold. 

August . $2,282 20 

September . 1,848 30 

October . 2,040 20 


$6,170 70 


Cost of 
Operation. 

$1,368 33 
1,459 35 
1,334 00 

$4,161 68 


. $4,651 

86 

1,542 

06 

. -2,921 

43 

2,948 

60 

1,652 

50 

. 2,160 

76 

200 

00 

$16,077 

21 

i- 

. $4,281 

50 

Total. 

$73,043 

81 

11,758 

45 

16,306 

40 

16,131 

06 

566 

36 

$117,806 

08 

4,205 

77 

$122,011 

85 

Total. 

$537 

85 

1,178 

85 

1,129 

90 

2,282 

20 

2,140 

80 

2,924 

20 

1,485 

50 

$11,679 

30 

OCTOBER. 

Profit or 

Loss. 


$913 

87 

388 

95 

706 

20 

$2,009 

02 













































